Strategic Intelligence

STRATEGIC INTELLIGENCE

STRATEGIC

INTELLIGENCE

FOR AMERICAN
WORLD POLICY

BY SHERMAN KENT

ARCHON BOOKS
HAMDEN, CONNECTICUT

1965

COPYRIGHT, 1949, BY PRINCETON UNIVERSITY PRESS

SECOND PRINTING, 1951

REPRINTED 1965 WITH PERMISSION
WITH A NEW INTRODUCTION

LIBRARY OF CONGRESS CATALOG CARD NUMBER: 65-25595

PRINTED IN THE UNITED STATES OF AMERICA

TO MY FRIENDS AND COLLEAGUES OF THE RESEARCH AND
ANALYSIS BRANCH OF OSS

TO THE EUROPE-AFRICA DIVISION
AND ESPECIALLY TO THE OLD AFRICANS
R.A.W., C.J.B., H.C.M., R.P.S.j J.L.H., JR. # R.G.M., H.L.R.,
G.C., W.C., W.B.R., W.C. f S.P.K., D.C., D.S.

— R.C., A.H.R., L.S.W. AFRICANS HONORARY —

PREFACE - 1965

T he intelligence experience which I drew upon to write
this book straddled the U.S. participation in World
War II by a few months at either end. (September 1941-
June 1946.)

For most of the period the obvious matter of first intel-
ligence concern was the Axis enemy. But even then as we
studied the Axis we knew that our fortunes were not
wholly tied to its capabilities for war and the vulner-
abilities which sapped them. We were aligned with many
allies and of them the Soviet Union was of crucial impor-
tance. It was absorbing a large proportion of the enemy’s
destructive power and in its willingness and ability to
take this punishment and in its capability to fight back
lay what might have been, quite literally, the outcome of
the war. Far from voluntarily keeping us informed as to
how things looked and how well prepared it was to cope
with Axis potential, the USSR told us virtually nothing.
Thus, if intelligence* components of our government had
not mobilized the country’s leading Soviet scholars and

•In this preface, as in the book itself, I am using the word "intelli-
gence” as it is generally understood in the non-Communist world. The
whole book is an elaborate definition of some of the main facets of this
concept (see the Appendix and especially its chart) . However, it is worth
noting here that the Communists— most notably the Soviets— use the word
in a more restricted and quite different sense. To begin with, the ex-
pression "overt intelligence" is to them pretty much a contradiction in
terms. All intelligence work and intelligence (the resulting knowledge)
is to them highly secret. It is almost wholly espionage, counter-espionage,
and the fruits thereof. Furthermore, intelligence being the highly impor-
tant part of the general revolutionary apparatus that it is, the concept
"intelligence" embraces the broad range of Communist clandestine opera-
tions, which are made feasible by clandestinely-procured information.

If in fact the Soviets engage in what we of the West call "intelligence
research and analysis” they have another name for it and a name bereft
of the cachet of "intelligence." It is seemingly inconceivable to them that
large numbers of people will be quite overdy engaged in something
known as intelligence work, able to inform all and sundry that this is in
fact their calling, and obliged to guard with secrecy only those matters
having to do with their sources, methods, the fod of their attendon, and
the content of their findings.

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PREFACE

set them to work analyzing what meager material was
available— practically all of it in the public domain— the
U.S. would have known little more than what was reported
from Embassy Moscow and otherwise divined from the
scope of Soviet demands upon our Lend-Lease Adminis-
tration.

Hindsight vindicates this effort— every bit as much for
the headstart it gave us for our prime post-war analytical
intelligence task as for the enlightenment it afforded its
contemporary consumers.

The final year of the war and the first months of the
peace conveyed some strong intimations of future Soviet
behavior. By the time I had finished my final draft of this
book (March 1948), it was clear that the Soviets had in
fact sworn out an ideological war; George Kennan in his
Mr. "X” article had not only spelled it out but had elabo-
rated a U.S. policy to contain it; Walter Lippmann had
some months since christened the unhappy state of world
affairs the Cold War.

My manuscript, I trust, reflected the growing strains
of the chilly new relationship; many of its exhortations
took off from a general unease of things to come: most
of our friends in the non-Communist world were in the
turmoil of post-war recovery; the Cominform now had in
its sights an all but limitless array of fat and easy targets.
One readily perceived that its activities would be numer-
ous and world-wide. Its power source, the Soviet Union,
was rapidly recuperating and, while the rest of us fell
into what General Marshall called military “demoraliza-
tion,” it maintained a formidable military potential. This
was rapidly shaping up to be the threat which would hold
Western Europe as virtual hostage and under which the
USSR could, for the time being, conduct many of its Cold
War forays with relative safety.

Happily the U.S. did not have to stand off the adversary's
assaults in a condition of pre-Pearl Harbor ignorance.

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PREFACE

Thanks to our wartime labors we not only possessed a
stock of relevant and useful information about the Soviet
Union, we also had the makings of a far better intelligence
profession than had existed heretofore. The analytical arm
of U.S. intelligence was able to identify its principal ob-
jectives— and with precision; it had developed some ma-
ture doctrine; it had mastered some difficult and important
methodologies; it was moving towards a common technical
vocabulary; and, most important of all, it had produced
a good number of sophisticated practitioners. With these
considerable assets and with the task ahead large but
seemingly manageable, there was probably a short period
during which the shrunken post-war intelligence com-
munity felt itself not wholly inadequate to face the fu-
ture. Let me underscore the relative briefness of this
period.

In 1948 few knowledgeable Americans could estimate
with confidence the imminence of 1949’s most dramatic
event. In the early autumn of 1949, the Soviets brought
off a nuclear explosion— almost certainly their first— which
the U.S. detected.

There was of course an immediate and dramatic impact
which came with the realization of the end of the Ameri-
can nuclear monopoly. But here as in so many cases a full
comprehension of just what the event portended had to
aw'ait the passage of time. At the moment, one's thinking
was a sort of spectral chamber of horrors, a space within
which there lay a jumble of exhibits no one of which came
through more sharply or disturbingly than any other.
The true dimensions of Soviet rearmament policy and
global strategy emerged with measured tread. The USSR's
role in the Greek civil war, its attempts to panic the Turks
and Iranians, its blockade of Berlin, and finally its parti-
cipation by proxy in the Korean war clinched previous
estimates of its aggressive expansionism.

Whatever the Soviet leaders' ultimate purpose with

IX

PREFACE

respect to its huge ground establishment, they would not
dismantle it. Furthermore, they were obviously embarked
on a program of modernization of other branches of the
military service.

In short order they began the weaponization of the
principles tested in the first nuclear explosion. Knowl-
edge of their testing and of other related activities re-
vealed a large and growing ability to manufacture the
necessary fissionable materials. On the basis of two B-29s
which they had hi-jacked from the U.S., they had begun
the production of their own first propeller-driven heavy
bomber, the TU-4. On the basis of twenty-five Nean jet
engines purchased in 1947 from the British, they began
the development of their own engines and of airframes
to match. The first MIG fighters soon came off the line,
followed by the jet bombers. Coincidentally, and largely
on the basis of German technology, they initiated serious
work on the whole family of missiles. Bold decisions re-
garding naval forces were made, and a formidable fleet
of submarines began to take to the seas.

In most— if not all— of these developments there were
for the U.S. ominous signs. Soviet leaders were rearming for
a good deal more than conflict within the Eurasian land
mass. An intercontinental offensive capability was being
built into their military establishment. Before the 1950s
were out there were three weapons systems specifically de-
signed to deliver nuclear warheads on the continental
United States: the manned bomber, the intercontinental
ballistic missile, and the missile-armed submarine.

Along with these offensive systems came much greater
developments in air defense: early-warning and other
radar, all-weather fighter-interceptor aircraft, anti-aircraft
missiles— the now famous SAMs— and later on an extensive
effort to build and deploy an anti-missile missile system.

The dramatic developments in matters military had
their counterpart in Soviet Cold War strategy. With the

x

PREFACE

passage of time Soviet leaders moved from a policy of
exclusively aiding those Communist parties of the Free
World which were potentially or actually powerful
enough to warrant the investment, to a new policy of
grants and loans to non-Communist, even bourgeois gov-
ernments. Their underwriting of the Aswan Dam and
military assistance to Nasser was a first step in the move
to push Soviet influence into uncommitted states of the
underdeveloped world.

The United States took these developments to heart.
We entered the era, intar alia , of the fifty billion dollar
defense budget, the multi-billion dollar foreign aid pro-
gram, and the world wide system of pacts and alliances.
We began to brace ourselves and our friends to deter
Soviet aggression, meanwhile moving out into the farflung
theaters of the Cold War.

But Communist busyness was not solely responsible for
the vastly augmented rate of change in the post-1948
world. The rapidity of the break-up of the colonial em-
pires and the emergence of the many new and highly un-
stable states made its own important contribution to
world chaos. At the other end of the spectrum, consider
the rapidity with which the defeated Germans and
Japanese recovered from the war and began to play an
important role in the world. In still a third and quite
different vein, consider the population explosion— in many
ways more awesome than those other explosions that went
off at Alamagordo and Semipalatinsk.

To the devotee of the intelligence calling this spectrum
of changes in the world situation and the speed with
which they were taking place were matters of profound
professional concern. Would the content of this book—
as it is here reprinted verbatim— still usefully serve? In
many ways, yes.

It will continue to serve those classical analytical as-

xi

PREFACE

pects of the intelligence task which must perforce— at
least in Western thinking— always be with us. That the
task has become vastly larger does not in itself invalidate
the principles which the book endeavors to set forth and
defend. That there are now one hundred fifteen members
of the United Nations as against fifty-one in 1945 is a
symbol of the augmentation.

To each of the new members we send an ambassador
and staff; each embassy has its back-up in the Department
of State. Scarcely a one of the new states that does not
offer a problem or an opportunity for our policy-makers:
the issue may be political, it may be economic, it may be
military; it is probably all three. Most of the decisions to
be taken in Washington will in last analysis involve
choices of varying degrees of difficulty, many of them sub-
stantial sums of money. They require that the decider
make his choice in an environment of knowledge. There
are now thousands of matters to which United States
could have shaded or closed its eyes in the heyday of
colonialism but which now it must know about and know
about through its own intelligence efforts.

While this incremental burden has grown to present
proportions, there has been no lessening of the burden
of staying informed about the array of long-established
states.

This merely means that there is a wider ground to
cover, and that whereas much of the new ground is less
familiar to us than, say, Western Europe, it is not so
different that the old methodologies will not work. In this
respect the intelligence business is much the same only
much bigger.

The Cold War and the ubiquity of its battlefields, large
and small, not only contributes to the size of the in-
telligence task, but the importance of its mission as well.

The penalties for ignorance in a truly peaceful situa-

xii

PREFACE

tion can be severe, a thousand times more so in the pres-
ence of an adversary who is everywhere trying to attrite
Free World standing and substance through his covertly
contrived nastinesses, and who keeps going until out-
witted or until he perceives his operations too dangerous
to warrant the risk. The fact that most of the offensive
operations of the Cold War are hatched in deepest secrecy,
elaborately cloaked and mingled with artful deceptions,
means that counter-action must in itself rest upon the
most subtle sort of protective intelligence work. The
wider apart or the more extensive the battle areas of this
conflict, the greater the intelligence chore. When the
enemy reaches one of the terminal points in his range of
Cold War strategies— the stirring up and supporting of
what he calls a "war of national liberation”— the intelli-
gence requirement behind a counter-insurgency action
becomes a very large undertaking. Much of what is here
written can be applied to the highly important analytical
facet of this intelligence chore.

But of all the intelligence obligations characteristic
of today’s world, the largest and most urgent is that
consequent to living under the threat of nuclear conflict.
The heart of the task derives from the very high rate of
change in the new weapons systems and in their destruc-
tiveness. If Napoleon’s G-2 had dozed off for a year, he
would not recognize each of the horses in a given Prus-
sian cavalry regiment. The new animals would, however,
still be ordinary horses; none would be a Pegasus. Such,
however, is the pace of moden technology that no intelli-
gence service dare doze a moment lest the docile cavalry
mount of yesterday turn up tomorrow not winged, but
jet-propelled and nuclear-loaded. Almost incredible as it
may seem, in the brief span of the fifties the Soviets
brought into service literally dozens of new weapons sys-
tems. The pace seemingly abates not.

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PREFACE

That the United States was able during the fifties to
keep these alarming developments under what, in this
book, I call surveillance, and hence be able to keep its
own prodigious defense efforts attuned to the shifting
capabilities of our principal antagonist, is wholly attribut-
able to the admirable work of American strategic intelli-
gence. But much of the surveillance was of a sort not
contemplated in this book, and its raw product not neces-
sarily legible to the kind of analyst I had in mind when I
wrote. It is not as if all of the old methods of watching
were superseded, but they did have to be supplemented
and supplemented by new and all-but-undreamed-of in-
telligence collection devices and methods.

The events that had to be watched were taking place in
parts of our environmental envelope not normally fre-
quented by earthbound observers: untravelled corners
of the earth and its mysterious subsurface, unknown
reaches of the seas, the air above us, and outer space
beyond that. The wonders of modern technology have
been invoked. What these wonders observe and what they
report, they report not in words, but in one of the new
languages of number, line, symbol, or picture.

The readers and translators of this new literature is a
new echelon of technical specialists. Though the funda-
mental truths which its members have sought were as old
as science and technology, politics, economics, strategy
and military policy, the approaches that had to be trans-
versed to reach the panorama were those denied to the
non-specialist.

It was not only that the new data were strange, their
volume was and is formidable. When considered along
with all other information collected by other more clas-
sical means, the amount very rapidly gets beyond the
competence of old-fashioned library science. How can
such quantities be sorted, catalogued, hied, and retrieved

xiv

PREFACE

upon demand; how used by a human researcher who is
endeavoring to discern a useful meaning? Computers and
their multiform auxilliary machines for the electronic
handling of data are already becoming the indispensable
tools for solving the intelligence analysts’ problems of in-
formation storage and retrieval. Not so long hence the
studious intelligence type will sit at a fancily-wired desk
and dial himself into a central "library” file, which em-
ploys the magnetic and microphotographic data storage
facilities of our large metropolitan businesses. What he
wants to read will appear on a sort of TV scope before his
eyes.

The computer has also had its dramatic impact on
analysis. With it, problems in the new esoteric areas of re-
search into the behavior of missiles, space craft, nuclear
explosions, and so on have become manageable; some of
the heretofore all-but-unsolvable problems of more famil-
iar disciplines— economics, for example— are even suscep-
tible to tentative or solid solution. The point is that just
as the miracles of modern technology have vastly com-
plicated the world with which the intelligence analyst must
cope, so have these same miracles become serviceable to
his requirements. The activity of intelligence research
has deepened and broadened, but thanks to the new uses
of electronics it can move with a speed commensurate at
least with the speed of the world's rate of change.

But whatever the new wrinkles, the eternal verities re-
main. These are the verities which I tried to stress in this
book: there is no substitute for the intellectually com-
petent human— the person who was born with the makings
of a critical sense and who has developed them to their
full potential; who through first-hand experience and
study has accumulated an orderly store of knowledge; and
who has a feeling for going about the search for further
enlightenment in a systematic way. The gTeat accomplish-

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PREFACE

ments of today’s intelligence brotherhood have been of
two sorts: collection and analysis. In the one no less than
the other the thoughtful effort of bright and studious
people conducting their business within the very broad
limits of the scientific method, is the thing which did the
trick.

I closed out the book with this setitiment because I
felt that there were perhaps fellow countrymen who, in
a mood of petulant criticism of the intelligence calling,
would pretend that a few rules of thumb, an appeal to
folk wisdom, and a little intuition could serve the purpose
and incidentally cost a lot less in time and effort. Today
I close out this essay reiterating my credo for another
reason.

A one-time high-ranking officer in Soviet intelligence,
General Alexander Orlov, has published a remarkable book
and one which every devotee of the intelligence calling
should read. Handbook of Intelligence and Guerrilla
Warfare * On pages eight and nine he quotes a short
passage from my book and notes that the injunction it
carries is “but one step from mysticism and metaphysics.”
Throughout his opening chapter, in which this observa-
tion occurs, he professes little respect for the philosophy
of Western intelligence work which is at the heart of my
book. He advances as the only philosophy, one which is in
almost diametrical opposition. If you wish to know the
other man’s secrets of state, he admonishes, put your faith
in that advanced form of second-storey work known as
espionage. This is the technique, which by making pos-
sible the purloining of the other man’s secret documents,
leads one surely to what one wants most to know. Inci-
dentally, General Orlov gives some stunning examples to
prove his case.

* (Ann Arbor, University of Michigan Press, 1963.)

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PREFACE

I do not for an instant wish to debate the values of a
well-placed spy. Lots of countries, including our own,
have lost priceless secrets of state to ingenious enemy
agents. The artfully contrived access to the documents,
the borrowing, reproduction, and return has been by all
odds the most successful and frequently employed method
of operation. What I do, however, wish to debate is one
of the implicit assumptions underlying General Orlov’s
proposition. Does he really believe that on any important
subject he wants to name there is a single document
or group of documents which contains the desired
secret? Does he really believe that the spy could know
enough about such a treasure to look for it in the right
place? Does he really believe that some spy or other
could secure access to the right place or could recognize
the document if he saw it? Or does he believe that success-
ful espionage will provide such a large volume of secret
documents, that the highest priority one or two will all
but inevitably be included in the collection?

There is no question that General Orlov’s successors in
the Soviet secret intelligence organization have directed
the lifting of a great many secret documents. But when
they had them in hand, what then? Did every document
proclaim on its face: "I am not the off-beat thoughts and
recommendations of a highly-placed but erratic advisor;
I am not a draft from high quarters intended solely as a
basis for discussion; I am not one of those records of
decision which will be rescinded orally next day, or
pushed under the rug and forgotten, or nibbled to death
by disapproving implementers. I am the McCoy; I am
authoritative and firm; I represent an approved intention
and I am in effect.

If I were to make a bold guess, I would guess that per-
haps one reason why the Soviet leaders got themselves
into the fix they did with the missiles in Cuba was be-

xvii

PREFACE

cause some Soviet secret operative stole some secret docu-
ments which turned out to be the wrong documents. If
I were to make another— and not such a bold guess at that
—it would be that the U.S. faced the Soviets down in this
crisis, not because we had stolen a Soviet document that
told us how Khrushchev and the Presidium would react
to our defiance, but because we based our decision on far
more costly, voluminous, and subtle sorts of information
and a lot of rigorous thoughtful analysis.

It is possible that the Soviets were led by purloined
documents to a misjudgment in Korea? Perhaps they be-
came convinced that we would not fight because such
papers confirmed public U.S. intimations to the effect that
southern Korea was not deemed to lie within our strategic
perimeter. And, to push the point further, suppose Soviet
agents had had the run of our most sensitive files, would
they have come across the document that told them the
opposite and that we would fight? This qlearly would
have been a document of very highest importance. But
they never would have found it. It did not exist. The de-
cision to fight was Mr. Truman's and he made it on the
spot after the Soviet-supported attack was on. Thus, if
knowledge of the other man's intentions is to be divined
through the reading of his intimate papers and one's own
policy is to be set on the basis of what one discovers, here
is a case where policy was on the rocks almost by defini-
tion.

And so to end this preface as I ended the book. What-
ever the complexities of the puzzles we strive to solve and
whatever the sophisticated techniques we may use to col-
lect the pieces and store them, there can never be a time
when the thoughtful man can be supplanted as the in-
telligence device supreme. Even the seemingly most valu-
able document cannot be unquestioningly accepted as the
basis for action until it has been evaluated in terms of

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PREFACE

something other than authenticity of source. If we agree
on this principle, I do not see how we can disagree much
about that "something other than." It is, in last analysis, a
judgment as to the plausibility of content— a judgment
which a disciplined mind will construct on the basis of
knowledge, wisdom, and plain horse-sense.

S.K.

August 1965

PREFACE

T his is a book about intelligence— not the intelligence
that psychologists try to measure in a given human
mind— but the kind a strategist must have to lay his plans
and carry them out. Intelligence, as I am writing of it, is
the knowledge which our highly placed civilians and mili-
tary men must have to safeguard the national welfare.

Although there is a good deal of understandable mystery
about it, Intelligence is a simple and self-evident thing.
As an activity it is the pursuit of a certain kind of knowl-
edge; as a phenomenon it is the resultant knowledge. In a
small way it is what we all do every day. When a house-
wife decides to increase her inventory, when a doctor
diagnoses an ailment— when almost anyone decides upon
a course of action— he usually does some preliminary intel-
ligence work. Sometimes the work is so informal and in-
stinctive that he does not recognize it as intelligence— like
finding the right garage man in the classified section of a
telephone book. Sometimes it is formal and arduous and
systematic as, for example, Arthur Koehler's brilliant an-
alysis of the ladder in the Lindbergh case. But no matter
whether done instinctively or with skillful conscious men-
tal effort intelligence work is in essence nothing more than
the search for the single best answer.

As I will be discussing it in this book strategic intelli-
gence is an extension of this search for useful knowledge.
The extension is, however, an extension in several direc-
tions. To begin with, the knowledge which strategic intel-
ligence must produce deserves a more forbidding adjective
than "useful." You should call it the knowledge vital for
national survival , and as such it takes on somberness and
stature. Then there is about it an extension in subtlety,
for some of the problems having to do with national sur-
vival involve long-range speculations on the strength and

PREFACE

intentions of other states, involve estimates of their proba-
ble responses to acts which we ourselves plan to initiate.
These problems cannot be dealt with except by the spe-
cial techniques of the expert. Thu extension in ex-
pertise is considerable. Again in the search for the subtle
knowledge, difficult barriers often stand in the way. They
are put there on purpose by other nations, and circum-
venting them calls for methods not generally familiar to
the average person. In these methods lies a third sort of
extension, one that leads out in the realm of clandestine
investigations. (Be it said that this phase of intelligence
work— the most dramatic— is pretty generally overempha-
sized in the lay mind.)

The last extension is one in the dimension of size. The
knowledge which strategic intelligence must produce is
very great in mere bulk, so large that in wartime tens of
thousands of skilled people could barely make good on
the job. In peacetime the task is commensurately great.
This means that the intelligence process becomes one of
group— as opposed to individual— effort; that there must be
a complicated and careful division of labor; and that there
consequently emerge problems of personnel, organization,
administration, and human relations which are peculiar
to the nature of the enterprise, and by no means charac-
teristic of all familiar and homely searches for truth.

Important as they are, these extensions, as I have called
them, are external to the heart of the matter: intelligence
work remains the simple, natural endeavor to get the sort
of knowledge upon which a successful course of action can
be rested. And strategic intelligence, we might call the
knowledge upon which our nation’s foreign relations, in
war and peace, must rest. If foreign policy is the shield of
the republic, as Walter Lippmann has called it, then stra-
tegic intelligence is the thing that gets the shield to the
right place at the right time. It is also the thing that
stands ready to guide the sword.

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PREFACE

Never before in our peacetime history have the stakes of
foreign policy been higher. This would indicate that
never before was it so important that the intelligence mis-
sion be properly fulfilled. Yet standing in the way of
proper fulfillment are a number of confusions which exist
among those who produce intelligence, among those who
use it, and among those who are its ultimate beneficiaries
—the citizens. Many of these confusions arise from impre-
cisions which have grown up in the language of intelli-
gence and which have found permanence in the manuals.
If the pages which follow contain words new to the intelli-
gence trade, if they seem unduly concerned with semantics,
I plead, as once did John Locke, that, “It may perhaps be
censured an impertinent criticism in a discourse of this
nature to find fault with words and names that have
obtained in the world. And yet possibly it may not be
amiss to offer new ones when the old are apt to lead men
into mistakes, . . .”

The plan of this book is simple. It is based upon the
three separate and distinct things that intelligence devotees
usually mean when they use the word. In Part I, I consider
intelligence as a kind of knowledge ("What intelligence
have you turned up on the situation in Colombia?’’). The
chapters of this part deal with its wide and varied content.

In Part II, I consider intelligence as the type of organi-
zation which produces the knowledge ("Intelligence was
able to give the operating people exactly what they
wanted”). The chapters here deal with organizational and
administrative problems of central and departmental intel-
ligence.

Part III considers intelligence as the activity pursued by
the intelligence organization ("The intelligence [work] be-
hind that planning must have been intense”). In these
chapters I discuss what intelligence work involves and
what I conceive to be the range of problems peculiar to it.

xxiii

PREFACE

Aa with books of this sort, the author is under greatest
obligations to friends, associates, and disputants who have
contributed wittingly and unwittingly to the text. Practi-
cally all I have written here has been the subject of long
discussions with the intelligence brotherhood. My general
and pervasive thanks go out to my masters and colleagues
in the onetime Office of Strategic Services: General Dono-
van, General Magruder, William L. Langer, Edward S.
Mason, Rudolph Winnacker, Donald McKay, Richard
Hartshome, Arthur Robinson and many many others.
Then in a special bracket should come Charlotte Bowman,
John Sawyer, Robert Miner, Beverly Bowie, and Bernard
Brodie who have read and reread, edited, corrected,
carped, and suggested. Without their help the work of
composition would have been difficult indeed. I want to
thank Alfred McCormack, another of my former chiefs,
for his many profound thoughts and suggestions, and Ar-
nold Wolfers, Willmoore Kendall, Percy Corbett, and
Whitney Griswold for readings of the manuscript and
many kinds of advice.

To the command, the staff, and the members of the first
class of the National War College, where I had the honor
to serve as one of the resident civilian instructors, I owe
deepest thanks. The atmosphere of the college, the many
kindnesses of its officers, and the stimulating and enlighten-
ing discussions it afforded are matters I wish to record with
gratitude. With no thought of ascribing to them either
approval or disapproval of the contents of this book all
thanks to Vice Admiral Harry W. Hill, Major General
Alfred M. Gruenther, Major General Truman Landon,
and Mr. George Kennan. All thanks also to Brigadier
Generals Timberlake and Picher, and to Colonels Werner,
Sweeney, Twitty, Wolfenbarger, Hertford, and Moore,
and to Captains Evenson and Wellings.

Most of the work of composition was done while on a
fellowship granted me by the John Simon Guggenheim

XXIV

PREFACE

Memorial Foundation. Like all Guggenheim Fellows, I
want to chronicle my thanks to that institution, my deep
appreciation of its generous and far seeing founders, and
its kindly and efficient secretary general. Dr. Henry A.
Moe.

I wish to thank George S. Pettee for any unconscious or
otherwise unacknowledged borrowings from his book.
The Future of American Secret Intelligence (Washington,
D.C. 1946) which was a trail breaker in the literature of
strategic intelligence. Although I find myself at variance
with many of his views, all intelligence devotees, myself
included, owe him gratitude for the promptness with
which he formulated his own wartime experiences and put
them into print.

I want to thank my university, Yale, and my department.
History, for continuing my leave-of-absence status another
whole academic year and thus making possible the concen-
trated effort which went into the work at hand.

Lastly my thanks to the Director of the Princeton Uni-
versity Press, Datus Smith, for his interest in the project
and his wise counsel.

Quotations from Walter Lippmann's Public Opinion
are given with the kind permission of the publisher, the
Macmillan Company.

S.K.

Department of History
Yale University
October i, 1948

xxv

NOTE TO SECOND PRINTING

T his second printing offers a chance for some minor
corrections. It also permits one major addition:
Through one of those errors— of the sort we wake to
ponder in the middle of the night— I forgot to name and
to thank in my first preface President James P. Baxter. Of
the handful of men with whom General Donovan began
to build his organization, Mr. Baxter is the one to whom
we of the Research and Analysis Branch owed most. Not
only was he a key man in the whole organization but he
was also our first director. From him and his top staff we
learned those first invaluable lessons of the intelligence
business, and to him we owe a large amount of gratitude
for any success we enjoyed both under his leadership and
after he returned to his college in mid-war. To him, my
belated but heartfelt thanks.

September 1 , 1950

S.K.

XXVI

CONTENTS

Preface vii

I. INTELLIGENCE 15 KNOWLEDGE

Chapter 1 . Intelligence Is Knowledge 3

Chapter 2. The Substantive Content of Strategic
Intelligence: (1) The Descriptive Ele-
ment 11

Chapter 3. The Substantive Content of Strategic

Intelligence: (2) The Reportorial Ele-
ment 30

Chapter 4. The Substantive Content of Strategic

Intelligence: (3) The Speculative-

Evaluative Element 39

II. INTELLIGENCE IS ORGANIZATION

Chapter 5. Intelligence Is Organization 69

Chapter 6. Central Intelligence 78

Chapter 7. Departmental Intelligence 104

Chapter B. Ten Problems from Experience 116

III. INTELLIGENCE 15 ACTIVITY

Chapter 9. Intelligence Is Activity 151

Chapter 10. Special Problems of Method in In-
telligence Work 159

Chapter 11. Producers and Consumers of Intelli-
gence 1 80

Appendix: Kinds of Intelligence 209

Index 221

xxvii

PART I

INTELLIGENCE IS KNOWLEDGE

CHAPTER 1

INTELLIGENCE IS KNOWLEDGE

I ntelligence means knowledge. If it cannot be stretched
to mean all knowledge, at least it means an amazing bulk
and assortment of knowledge. This book deals with only a
fraction of the total, but probably the most important frac-
tion. It deals with the part, known to the intelligence trade
as "high-level foreign positive intelligence. ,, This phrase
is short for the kind of knowledge our state must possess
regarding other states in order to assure itself that its cause
will not suffer nor its undertakings fail because its states-
men and soldiers plan and act in ignorance. This is the
knowledge upon which we base our high-level national
policy toward the other states of the world.

Notice what is being excluded. First, all knowledge of
our own domestic scene is being left out. Foreign positive
intelligence is truly "foreign" in purpose, scope, and sub-
stance. It is not concerned with what goes on in the
United States or in its territories and possessions. Second,
all knowledge of the sort which lies behind the police func-
tion is excluded. The word "positive" comes into the
phrase to denote that the intelligence in question is not
so-called "counter-intelligence" and counter-espionage nor
any other sort of intelligence designed to uncover domes-
tically-produced traitors or imported foreign agents. The
words "high-level" are there to exclude what is called "op-
erational" intelligence, tactical intelligence, and the intel-
ligence of small military formations in battle known as
combat intelligence. What is left is the knowledge indis-
pensable to our welfare and security. It is both the con-
structive knowledge with which we can work toward peace
and freedom throughout the world, and the knowledge
necessary to the defense of our country and its ideals. Some
of this knowledge may be acquired through clandestine

3

STRATEGIC INTELLIGENCE

means, but the bulk of it must be had through unroman-
tic open-and-above-board observation and research . 1

It should be borne in mind— in anticipation of later
chapters of this book which deal with intelligence as a
process— that the intelligence activity consists basically of
two sorts of operation. I have called them the surveillance
operation J by which I mean the many ways by which the
contemporary world is put under close and systematic ob-
servation, and the research operation. By the latter I mean
the attempts to establish meaningful patterns out of what
was observed in the past and attempts to get meaning out
of what appears to be going on now. The two operations
are virtually inseparable, though for administrative and
other reasons they are often physically separated. In actual
practice there are generally two different staffs each of
which cultivates the respective specialisms of surveillance
and research. But however far apart they get on the ad-
ministrative diagram or in the development of their own
techniques they are closely bound together by their com-
mon devotion to the production of knowledge.

How describe this kind of knowledge? There are at
least two ways. One way is to treat high-level foreign posi-
tive intelligence as the substance of humanity and nature-
abroad. This involves an almost endless listing of the
components of humanity and nature. The listings can be
alphabetical or topical. Whichever, it runs to hundreds of
pages and would ill serve the interests of the readers of this
sort of book.

The other way, and the one I have adopted, is neither
alphabetical nor topical. It might be called functional.
It starts from the premise that our state, in order to sur-
vive in a world of competing states, must have two sorts of
state policy. The one is its own self-initiated, positive,

1 Appendix I, offers a brief discussion of all types of intelligence; sepa-
rates them out from each other in two rather formidable charts, and
endeavors to show the interrelationship between the key types.

4

INTELLIGENCE IS KNOWLEDGE
outgoing policy, undertaken in the interests of a better
world order and a higher degree of national prosperity.
The other is its defensive-protective policy necessarily un-
dertaken to counter those policies of other states which are
inimical to our national aspirations. This second kind of
policy might better be called our policy for national se-
curity. I make this artificial distinction, between positive
and security policies, for purposes of the present analysis.

Consider our positive policy first. To be effective, its
framers, planners, and implementers must be able to select
the proper instrumentality of suasion from a long list of
possibles. Will it be a resolution in the UN, will it be
diplomacy, will it be political and economic inducement
or threat, will it be propaganda or information, will it be
force, will it be a combination of several? The framers,
planners, and implementers must also know where, how,
and when to apply the. instrumentality of their choice.
Now neither the selecting nor the applying can be done
without reference to the party of the second part. Before
the policy leaders do either they would be well advised
to know:

how the other country is going to receive the
policy in question and what it is prepared to
use to counter it;

what the other country lacks in the way of coun-
tering force (i.e.) its specific vulnerabilities;
what it is doing to array its protective force; and
what it is doing, or indeed can do, to mend its
specific vulnerabilities.

Thus our policy leaders find themselves in need of a
great deal of knowledge about foreign countries. They
need knowledge which is complete, which is accurate,
which is delivered on time, and which is capable of serv-
ing as a basis for action. To put their positive policy into
effect they should first and foremost know about other

5

STRATEGIC INTELLIGENCE

countries as objective entities. For example, they must
know about:

a. the physiques of these countries, that is, their
natural topography and environment and the
multiform permanent structures which man
has added to the landscape (his cities, his agri-
cultural and industrial enterprises, his trans-
portation facilities, and so on);

b. their people— how many; how they are settled;
how occupied;

c. the status of the arts, sciences, and technologies
of these people (and I would include in this
the status of their armed forces);

d. the character of their political systems, their
economies, their social groupings, their codes
of morality, and the dynamic interrelations
which prevail among all these.

Armed with this knowledge the leaders of positive pol-
icy may go forward assured at least that, if they fail, their
failure will not be chargeable to their ignorance.

Secondly, consider our other sort of policy, that is, our
policy concerned with the maintenance of the national
security. In the interests of security our policy leaders
must make constant provision for the positive policies of
other states. Some of these policies we will have to regard
as hostile to our interests and we must take steps to block
them. Some, we may wish to meet half way. To frame
and operate this kind of security policy we must have a
second large class of information about foreign countries,
and again the knowledge must be complete, accurate,
timely, and capable of serving as a basis for action. We
must know the nature and weight of the instrumentalities
which these other countries can summon in behalf of their
own policies, and we must know the direction those poli-
cies are likely to take. We must know this not only so that

6

INTELLIGENCE 15 KNOWLEDGE
we will not be taken by surprise, but also so that we will
be in a position of defensive or offensive readiness when
the policy is launched. When you know such things you
know a good deal about the other country’s strategic stat-
ture j to borrow a phrase I will develop in Chapter 4. And
on the theory that there is a relationship between what a
country adopts as an objective and what it thinks it can
expect to accomplish, knowledge of strategic stature con-
stitutes, in some degree at least, knowledge of the other
country’s probable intentions.

From the foregoing it can be seen that my first class of
information to be acquired is essentially descriptive and
reportorial. It is descriptive of the relatively changeless
things like terrain, hydrography, and climate. It is descrip-
tive of the changeable but no less permanent things like
population. It is descriptive, too, of the more transient
man-made phenomena such as governmental or economic
structures. With this kind of knowledge our leaders can
draft the guide lines of our positive policy, of our peace-
time and wartime strategy.

The second class of information to be acquired deals
with the future and its possibilities and probabilities: how
another country may shape its internal forces to service
its foreign policy or strategy; how it may try to use these
strengths against ns, when, where, and with what effective-
ness. Where the first was descriptive, this is speculative
and evaluative.

Within these classes of things to be known, then, we
may perceive the statics, the dynamics, and the potentials
of other countries; we will perceive the established things,
the presently going-on things, and probable things of the
future. Taken together these make up the subject matter
of what I have called high-level foreign positive intelli-
gence, or as I shall call it henceforth— strategic intelligence.
Incidentally, they also indicate the three main forms in
which strategic intelligence is turned out by intelligence

7

STRATEGIC INTELLIGENCE

organizations. These forms are: the basic descriptive form,
the current reportorial form, and the speculative-evaluative
form . 2 Each of these is covered in a succeeding chapter.

In these coming chapters I will give a picture of the
diversity and the size of strategic intelligence's substantive
content. There is no gainsaying that it is both extremely
diversified and extremely large. But this does not argue
that the strategic intelligence business is either continu-
ously occupied with every subject in the huge overall con-
tent or exclusively responsible for gathering all the data
which make up the content. I wish to be clear about these
two points.

Intelligence must be equipped to deal with the array
of subjects which I will consider, and in the course of the
years it may conceivably deal with all of the subjects at
least once. It will, however, tend to deal with any single
subject only when that subject is part of a threat to our
national interest or is required by a prospective course of

"Here is the first place where I will depart from some of the accepted
usaga of the intelligence language. I take this departure, as I have noted
in the preface, beaux of the large confusion one encounters in the lexi-
con of the trade. In the trade, what I have ailed the basic docriptive form
is variously oiled basic research, fundamental research, basic data, mono-
graphic data, etc. What I all the current reportorial form goes by such
names as current intelligence, current evaluations, current appreciations,
reports, able material, hot intelligence, etc. What I all the speculative-
evaluative form is known as estimates, strategic estimates, evaluations, staff
intelligence, apabilities intelligence, and so on.

On the theory that the consumers of intelligence are inters ted in
things of the past, present, and future, I have adopted the clement of
time as the element of overruling importance. This permits an easy and
consistent arrangement of the subject matter of intelligence and permits
one to postpone ataloguing this subject matter according to usc-to-be-
served, consumer, etc. until a later and more appropriate stage. Few
intelligence devotees have done this in the past. Far too many of them
in making up their ategories of the kinds of intelligence have deferred to
several factors of discrimination in the same list. Thus you may find
important directives of the intelligence brotherhood which contain a list
of the kinds of intelligence looking something like this: (1) Basic research,
(2) Strategic intelligence, (3) Technical intelligence, (4) Counter intelli-
gence, (5) Tactical intelligence, (6) Capabilities and estimates intelligence.
Such ategories are by no means mutually exclusive nor are they con-
sistent with one another.

8

INTELLIGENCE IS KNOWLEDGE
action. One of the most continuously vexing problems in
the administration of intelligence is deciding which par-
ticular subjects shall be watched, reported upon, or made
the object of descriptive or speculative research. Equally
vexing is deciding the order of their priority. The point
is that intelligence is always fully occupied, but occupied
almost exclusively on a relatively few subjects of real na-
tional concern. At the same time intelligence must be
ready to handle a large number of subjects.

Collecting the materials necessary to handle this large
number is a task which intelligence does not do solo. In-
telligence shares the task with a number of institutions—
both public and private. Let me confine myself to the
public ones.

Although the policy, planning, and operating officers of
the federal government (both civilian and military) are
the primary users (or consumers) of the finished intelli-
gence product, they themselves are often important gath-
erers and producers. As men who work in the world of
affairs they turn out, as by-products of their main jobs,
large amounts of material which is the subject matter of
strategic intelligence. The best case in point is the foreign
service officer in a foreign post. His main job is represent-
ing the United States’ interest in that country, but a very
important by-product of his work is the informational
cable, dispatch, or report which he sends in. Not merely
the informational cable but the co-called "operational”
cable as well. For in his capacity as U.S. representative
he must know much before he takes a stand, and he must
explain much to his superiors at home when he has taken
such a stand or when he asks their advice. Although the
primary purpose of such communications is operational,
they are frequently almost indistinguishable from those
which flatly state the day’s new developments. And thus
the foreign service officer, although not specially trained
as an intelligence man, is by virtue of his location and

9

STRATEGIC INTELLIGENCE

talent often a valuable and effective purveyor of intelli-
gence.*

There are others in public life, such as members of spe-
cial commissions, U.S. delegates to international confer-
ences, traveling Congressmen; and that such people make
significant contributions to the total task of intelligence
must be borne in mind in the following chapters. Nor
should the involuntary contributors outside of public life
be forgotten: the writers, the newspapermen, the scholars,
the businessmen, the travelers and big game hunters, even
foreign governments themselves (in their official reports
and releases) render invaluable aid. I would have no
reader get the idea that intelligence— in shirt sleeves and
unassisted, so-to-speak— is obliged to produce from scratch
the prodigious body of data that it must have at hand. To
make this point, however, in no way derogates the ex-
tremely important part of the total which intelligence
itself does produce on its own hook. Some of this is con-
firmatory, and necessarily so; some is supplementary or
complementary of that which is in; some is brand new and
sufficient unto itself. Some is not merely new and vital,
but is the stuff which would not, indeed could not, be
turned up by any agency other than intelligence itself. All
of it, plus the time and skill intelligence organizations em-
ploy in its appraisal, analysis, and tabulation, makes up the
substantive content of our special category of knowledge.

■For certain key parts of the world the Foreign Service docs acknowl-
edge the need for special training, and the officers which it sends to these
areas may accordingly be considered intelligence officers in one sense or
the word. Most of even these however will have many non-intelligence
duties.

10

CHAPTER 2

SUBSTANTIVE CONTENT: (1) THE BASIC
DESCRIPTIVE ELEMENT

T he descriptive element of strategic intelligence is basic
to the other two which I shall discuss. It is the ground-
work which gives meaning to day-to-day change and the
groundwork without which speculation into the future
is likely to be meaningless.

The basic descriptive element deals with, or must be
prepared to deal with, many things. In the succeeding
pages I shall touch upon enough of them to warrant my
use of the word ,, many. ,, I shall draw my examples from
the strategies of both war and peace, but if they seem
weighted on the side of war it is because wartime has in
the past offered richer experience in intelligence and an
experience which may be discussed more freely than cur-
rent international business.

In the recent war most of the belligerents compiled en-
cyclopedias on countries they were contending with or
which they planned to occupy or otherwise swing into
their orbits. These encyclopedias should be conceived of
either as a large file of knowledge in folders in a filing
cabinet or in some sort of finished book form. Intelligence
agencies all over the world kept this kind of file and wrote
this kind of study. The British called them intelligence
studies, monographs; we called them strategic surveys,
topographical intelligence studies, field monographs; the
Germans called them summaries of military-geographical
information or naval-geographical information. Their
basic aim was to provide the strategic planner with enough
knowledge of the country in question to make his over-all
calculations on its attributes as a zone of combat. Actually
they served a hundred other uses, by no means all of which

11

STRATEGIC INTELLIGENCE

were military in the narrow sense of the word. A survey
of the table of contents of a typical German book will in-
dicate the scope, if not the depth, of the knowledge re-
quired for military purposes.

I. General Background. Location. Frontiers. Area.
History. Governmental and Administrative Struc-
ture.

II. Character of the Country. Surface Forms.
Soils. Ground Cover. Climate. Water Supply.

III. People. Nationalities, language, attitudes. Popu-
lation distribution. Settlement. Health. Struc-
ture of society.

IV. Economic. Agriculture. Industry. Trade and
Commerce. Mining. Fisheries.

V. Transportation. Railroads. Roads. Ports. Air-
fields. Inland Waterways.

VI. Military Geography. [Detailed regional break-
down].

VII. Military Establishment in Being. Army: Order
of Battle, Fixed Defenses, Military Installations,
Supply. Navy: Order of Battle, The Fleet, Naval
Shore Installations, Naval Air, Supply. Air: Or-
der of Battle, Military Aircraft, Air Installations
(see List of Airdromes, etc. Special Appendix),
Lighter than air. Supply.

VIII. Special Appendixes. Biographical data on key
figures of the government. Local geographical
terminology. Description of rivers, lakes, canals.
List and specifications of electric power plants.
Description of roads. List of airdromes and most
important landing grounds. List of main tele-
phone and telegraph lines. Money, weights, and

12

INTELLIGENCE IS KNOWLEDGE
measures. Beaches [as for amphibious military
operations].

A table of contents is the bare bones of the matter; it
does not reveal the character and bulk of the surrounding
tissue. Consider, for an appreciation of the detail in a
handbook of this sort, the kind of knowledge which lies
behind some of the simple one-word entries.

Take the chapter on ,, people ,, for instance. Here one
finds the latest population estimates— breakdowns accord-
ing to age, sex, consumer groups, regional distribution, and
so on. When you reflect that few states of the world spend
the effort on their vital statistics that our census people
spend on ours, and that even relatively reliable figures for
these states emerge only upon large labor, you discern the
importance and perhaps the magnitude of the population
and manpower division of strategic intelligence. Here in
the study in question one also finds sections on social struc-
ture and social attitudes, with analyses of the groupings
of society— ethnic groupings, minority groupings, religious
groupings, clubs, lodges, secret societies, etc., and how
these groups and their members feel about God, educa-
tion, filial piety, bodily cleanliness, capitalism, love, honor,
and the stranger. Here are the sections on public welfare,
education, and the media of public opinion.

Take the chapter on "transportation” and consider the
details presented with each transportation system. The
road section begins with a map of the road net; then fol-
lows a kilometer-by-kilometer log of the main routes, with
observations on surface, width, grades, curves, fills, cuts,
and bridges; then follows an overall appreciation of the
route under survey. All these seemingly endless data have
been assembled to permit the top planner and his trans-
portation man to make the following calculation: What is
the highest permissible speed which the largest and heavi-
est vehicle may maintain over the road from A to B and

13

STRATEGIC INTELLIGENCE

how many such vehicles may pass over the road at that
speed before the road (and in consequence the vehicles)
will start disintegrating?

Similarly with the railroads. Here again the gauge, num-
ber of tracks, and the routings (in the plane) are portrayed
in general and detailed maps; what might be called the
vertical dimension of the route is given in a profile. A
well designed profile provides more than the data on
grades, however; it can be (and frequently is) a kind of
mile-by-mile strip-map which indicates tunnels, bridges,
water points, ash pits, sidings, terminals, wyes, and repair
shops. With maps and profiles are a welter of other data:
subgrade, ballast, tie characteristics, rail weights and
lengths, rail fastenings, signaling systems, and clearances;
also an inventory by types of locomotives and rolling stock.
By the time such materials are put together the planner
has the data to calculate capacity of the railroad, what he
should fetch along in the way of supplementary motive
power and cars if he is to use the railroad, and what his
maintenance problems are likely to be. If he has not these
data, strategic intelligence has failed.

With ports there is another range of data: area of pro-
tected water, depth of the water (at low water ordinary
spring tides), dockage and depth of water at dockside,
cranes on the docks, means of transportation for clearing
the docks and for clearing the harbor area, warehousing
and storage facilities, harbor craft, local stevedoring situa-
tion, bunkerage and watering apparatus, and repair facili-
ties. All these and many more things— all of them in con-
siderable detail— you must know before you can plan the
effective use of the port which you plan to capture un-
damaged and put to your own use. Most of these things
you can find out about; some are not learned because no
one asked the right question, others are almost impossible
to find out about or are beyond the realm of the strategic
intelligence responsibility.

14

INTELLIGENCE IS KNOWLEDGE

For example, the transportation officer responsible for
the debarkation of our men and equipment in the port
of Algiers immediately after the assault was well supplied
with the most detailed knowledge of that port, but intelli-
gence failed him in at least two respects. It did not tell
him that virtually every square yard of dock space was
jam-packed with enormous barrels of wine and equally
large and unhandy bales of straw. Before he could unload
his own stuff he had to make way for it. This was a case
of the unforeseen contingency.

The other failure is harder to excuse. One of the trans-
portation officer’s duties was to see that a number of fighter
aircraft were unloaded and moved to the nearby Maison
Blanche airdrome in the shortest time possible. If he could
have been sure that fully assembled planes of this type
could be off-loaded and wheeled down the docks, clear of
the harbor area and down the highway, he would have
loaded them on shipdeck ready to fly. But he was not sure
of the width of the streets along his possible itineraries and
so he removed the wings. If intelligence had anticipated
such a requirement, or if it had been informed of it, the
officer might have had his answer and thus have saved him-
self some time, for at least one of the routes proved amply
wide for the job.

Consider the chapter on the military establishment in
being. Granted that the force in being is seldom an accu-
rate index of the war-making potential , 1 there is some vir-
tue in knowing what exists as a nucleus of military power
and the chapter in question endeavors to describe just this.
It describes the components of the standing force. In broad
strokes, the most important of these components on the
physical side are: the number of men under arms;
their allocation among the three military services— ground
forces, air forces, and naval forces; their tactical and ad-

1 This will be discussed in Chapter 4 on the speculative-evaluative
aspects of intelligence.

15

STRATEGIC INTELLIGENCE

ministrative organization; the quality and quantity of
their equipment, large and small, the inventory of weapons
according to type and performance, the fixed defenses, in-
ventory of aircraft and warships according to type and per-
formance; the nature of military installations— arsenals,
airfields, repair depots, shipyards, etc.; and the nature of
their supply, auxiliary, and medical services. On the non-
physical side there are other broad components: methods
and standards of recruitment; methods and extent of train-
ing; experience under arms and experience in combat;
quantity and quality of officers; quality of staff work; the
identity of the important officers; the nature and force of
the military tradition; the degTee of esteem in which the
nation holds its armed services— all of these things head up
into two intangibles: military skill and morale. If my
strokes were made only a little less broad this enumera-
tion would be many times its present length.

For example, consider one small item in the above
line-up of major factors— the operational airfield. There
are many categories of things which must be known of it.
First it must be analyzed from the point of view of how
a potential enemy might use it and how well it would
serve his purposes: what is its exact location on the map
and its location with respect to other airfields and supply
centers; what is its elevation above sea level; what supply
facilities does it enjoy (its place in the transport and com-
munications net, in the electric power grid, the character
of its shops and hangars, barracks, its fuel and lubricant
storage installations, its munitions storage facilities), what
kind of planes* can it accommodate and how many (length
and type of runways and taxiways, revetments, hard-stands,
dispersal areas), what hazards to air navigation does it
possess (climate, weather, mountains and other natural ob-
stacles, power lines), what in the way of protecting AA
positions and smoke installations does it have?

Second, this same field might be analyzed from the point

16

INTELLIGENCE IS KNOWLEDGE
of view of its susceptibility to attack. In this case many
of the characteristics noted above are still applicable; there
are also some new ones. Chief of these are: what are its
identifying characteristics as seen from the air, what
amount and kind of camouflage is used or may be antici-
pated, what is the physical vulnerability of its man-made
components and their recuperability if subjected to aerial
bombardment.

Thirdly, it might be analyzed from the point of view of
its use to the captor if captured. This analysis would de-
mand a number of still further data on the detailed inven-
tory of equipment. Can the machine shops, if taken un-
scathed, be used for the repair of one’s own planes? Can
the revetments and hard-stands? If not, how much must
they be modified, etc? When knowledge has been assem-
bled to answer these questions, and many others, with re-
spect to all the military airfields of the country, then this
fragment of the chapter on the military establishment is
done. Questions of the sort applicable to an airfield are
roughly applicable to all other installations or major pieces
of armament— naval bases, arsenals, warships— and again
the knowledge brought together to answer them is a part
of the content of strategic intelligence.

Let the above suffice to indicate the scope, depth, and
character of a compilation of knowledge to serve one aspect
of war-making. Before going over to the encyclopedias of
peacetime strategy, I would like to indicate the substantive
character of three other aspects of wartime strategic intel-
ligence of the descriptive category: the intelligence of
strategic air bombardment, of political and economic war-
fare, and of military government.

1. Strategic Bombardment

The crux of strategic bombardment (provided you have
an airforce that can reach the target and bombardiers who

17

STRATEGIC INTELLIGENCE

can hit it) is target selection. Assuming urgency in the
time dimension, you must try to select those sectors of the
enemy’s war machine whose destruction will most signif-
icantly, rapidly, and permanently weaken his front line
striking power. Since there may be several such sectors,
and since they all cannot be destroyed in a single raid
(even with the A-bomb) you must not only identify such
targets, but you must arrange them in rank order of impor-
tance. The business of identifying targets and systems of
targets, in terms of what their loss would mean to enemy
war power, and the business of setting the priorities of
their destruction, belongs properly in a later chapter,
where I deal with the speculative-evaluative aspects of
strategic intelligence. But both before and after this all-
important evaluating operation, there are two others which
partake very heavily of the descriptive.

The targets which you are after constitute, in essence,
the vulnerable areas of the enemy’s way of making war
and maintaining a functioning society; and these most
vulnerable areas cannot be picked out from the least (or
less) vulnerable areas until a great deal is known about
the enemy’s entire way of life and his entire way of making
war. Thus, whereas the strategic bombardment planner’s
encyclopedia need not include in detail all of the things
necessary for the ground force (such as strategic geography
and public health) , it overlaps that encyclopedia in some
places and goes beyond it in still others.

For the bombardment of a Germany or a Japan it had
to describe the national economies as if the description
were designed for the use of Funk and Speer or of Ishi-
bashi and Fugiwara; it had to range out into the pattern
of social institutions as if to serve Himmler and Goebbels
or Konoye and Tojo. Before the planes went off on their
first mission of systematic destruction, the planners for the
bombardment of Germany had to know a very great deal
about the airframe, aircraft-engine and aircraft-component

18

INTELLIGENCE IS KNOWLEDGE
production, the production of ball bearings, of synthetic
rubber, and of oil. 2 Moreover, before they decided that
these sectors of the economy were the ones whose destruc-
tion would give them the most significant, rapid, and per-
manent weakening of German war-making capacity they had
to know a very great deal about other sectors. The deci-
sion to send the B-29’s against Japanese aircraft, aircraft
engines, arsenals, electronics plants, oil refineries, and ul-
timately against the concentrations of urban population
had behind it a similar stock of encyclopedic knowledge.

Once the strategic vulnerabilities were tagged and the
priorities of attack settled, more descriptive knowledge was
required to carry out the attack. Our bombers were to
bomb physical man-made structures that the enemy was
trying hard to conceal from ken, camera, and eyesight. De-
termination of their pinpoint location, their susceptibility
to high explosive and incendiary, the ease with which they
could be repaired, and so on, was more descriptive knowl-
edge for which strategic intelligence was partly responsi-
ble. I say partly, because another part of the job was that
of operational intelligence.

2. Political and Economic Warfare

Warfare is not always conventional; in fact, a great deal
of war, remote and proximate, has been fought with
weapons of an unconventional sort. These weapons I
should like to term political and economic, and the kind
of war they are employed in, political warfare and eco-
nomic warfare. In both of these non-conventional warfares
you try to do the two things: weaken the enemy’s will and
capacity to resist, and strengthen your own and your friends’
will and capacity to win. Political warfare might be de-

■See the U.S. Strategic Bombing Survey (European War), Overall Re-
port and Summary Report. (Washington, G.P.O., September 30, 1045);
and the U.S. Strategic Bombing Survey (Pacific War), Summary Report.
(Washington, G.P.O., July 1, 1946).

19

STRATEGIC INTELLIGENCE

fined as an attempt to accomplish these ends by any means
at your disposal except (1) the economic means (which I
am reserving) and (2) orthodox military operations. Eco-
nomic warfare may be similarly defined with the appro-
priate reversal of terms. In their politer guises both of
these warfares have their peacetime uses; both are em-
ployed as instrumentalities of the grand strategy of peace;
and both have their own intelligence requirements in war
and peace.

If the reader will pause to reflect briefly on the meaning
of my definition of these two warfares in their rugged and
their polite aspects, he will realize that they encompass a
very wide range of possible activities directed at a very wide
range of objectives. Consider some of these. On the po-
litical side we may start with international alliances or
friendships to be strengthened or strained and interna-
tional animosities to be smoothed over or aggravated.

Within a given national state there is a wide range of
potential targets: first of all the armed forces and their
morale problem. Then there are the political dissidents,
maladjusted social groups, the under privileged, self-con-
scious minorities, labor leaders, gold-star mothers, paci-
fists, angry housewives, emergent messiahs, gullible or
corruptible officers of government, and a hundred other
categories of the misinformed, displeased, annoyed, unsat-
isfied, and outraged elements of the population. On the
economic side there are international trade relationships
and international financial arrangements to be dealt with,
and within the country itself soft spots in the domestic
economy that may be reached by non-military means.

The instrumentalities which total war suggests in the
exploitation of these targets are large in number and for
the most part as thoroughly unlovely as shooting war itself.
To begin at the gentle end is to begin with the instrumen-
tality of truth itself— truth purveyed openly by radio of
known origin, by newspapers in miniature form (delivered

20

INTELLIGENCE IS KNOWLEDGE
by aircraft). Such aspects of political warfare were typical
of our own Office of War Information and the British
Broadcasting Corporation. Then comes the distorted truth
which we call open propaganda, and with which we are
pleased to associate the names of Lord Haw Haw, Axis
Sally, Tokyo Rose, and the Japanese artist who designed
the fulsome five-color depictions of what the "Yanks” in
Sidney were doing to the wives of the Australian soldiers
in the field. Next down the line is what is termed black
propaganda, that which purports to come from dissident
elements within the enemy’s own population, but which
is really carried on in great secrecy from the outside.
Sometimes the black propaganda is done by radio, some-
times by leaflet, by fake newspaper, by forged letter, by
any and all the means occurring to perverse ingenuity. 8
The instrumentalities under discussion thus far have been,
by and large, applicable to the target by remote control;
there are other instruments which can be employed only
by penetrating enemy lines. This group of instruments
leads off with the rumor invented and passed along by
word of mouth, it includes subornation of perjury, in-
timidation, subversion, bribery, blackmail, sabotage in all
its aspects, kidnaping, booby trapping, assassination, am-
bush, the franc tireur , and the underground army. It in-
cludes the clandestine delivery of all the tools of the
calling: the undercover personnel, the printing press and
radio set, the poison, the explosives, the incendiary sub-
stances, and the small arms and supplies for the thugs,
guerrillas, and paramilitary formations.

The instrumentalities of economic warfare are simple
and almost simon-pure by comparison. In one idiom they
consist of the carrot and the stick, or in Provessor Viner’s
inversion, the Big Stick and the Sugar Stick. Translated
into a more technical idiom they involve: blockade, pre-
clusive purchase, freezing of funds, boycott, embargo, and

1 See Elizabeth P. MacDonald, Undercover Girl. (New York, 1947) .

21

STRATEGIC INTELLIGENCE

the black list on the one hand, and subsidies, loans, and
bilateral trade, barter, and purchasing agreements on the
other. 4

Before calculations of risk, expenditure of effort, and
probable effectiveness of attack can be made, all phases of
the polity, the society, and economy must be understood,
their vulnerabilities appraised, and methods of pressure
selected. A political warfare as deadly as the Germans
used in Europe both before and after the outbreak of
armed hostilities and as the Japanese used in the putative
Co-Prosperity Sphere of Greater East Asia was based upon
the most painstaking and minute surveillance and research
imaginable. The sureness and deftness and timeliness of
their splitting off and activating this dissident group, of in-
creasing the worry and apprehension of that, of aggravating
this annoyance and that cosmic gripe, of confusing this
group of officials and subverting that, of sweeping this
country into their economic orbit or virtually bankrupt-
ing that one, grew out of the descriptive knowledge which
their intelligence operations prepared for this use.

3. Military Government

The war over, the responsibilities of our armed forces
continued in the civil affairs activities of the military gov-
ernment of occupied territory. The Army-Navy Manual
of Military Government and Civil Affairs 5 which "states
the principles which serve as a general guide ... [to the
exercise of] military government and control of civil af-
fairs in territory occupied by forces of the United States"
lists the occupants 1 responsibilities in twenty-three named
categories and one miscellaneous. These are: "Political
and Administrative. Maintenance of Law and Order. Su-

4 Sec David L. Gordon and Roydon Dangerfield, The Hidden Weapon:
The Story of Economic Warfare. (New York, 1947).

■ Issued by the War Department as FM 27-5 and the Navy Department
u OPNAV 50 E-3, under date of December 22, 1943, p. 1.

22

INTELLIGENCE IS KNOWLEDGE
pervision of Military and Civil Courts. Civilian Defense.
Civilian Supply. Public Health and Sanitation. Censor-
ship. Communications. Transportation. Port Duties.
Public Utilities. Money and Banking. Public Finance.
Commodity Control, Prices, and Rationing. Agriculture.
Industry and Manufacture. Commerce and Trade. Labor.
Custody and Administration of Property. Information.
Disposition, or Relocation of Displaced Persons and En-
emy Nationals. Education. Records, [and in case they
have missed something] Miscellaneous.” 0

Of course, the degree of the occupant’s responsibility
within any one of the areas listed above is circumscribed
by the nature of his mission— after all, he will not try to
run the country at the same level of satisfaction demanded
of its previous sovereign. He will try to run it with an
eye merely to the prevention of those evidences of dissatis-
faction: “disease and unrest,” as the formula goes. But
even so the responsibilities are large. They are so large
that they cannot be undertaken without a very careful eval-
uation of objectives, without a very careful formulation of
policy, and without a great deal of highly detailed plan-
ning. Here is another legitimate demand upon the de-
scriptive element of intelligence, for it is impossible for
the man invested with the occupant’s responsibilities so
much as to nibble at their edges until he knows the nature
of the society, polity, and economy with which he must
deal. Intelligence supplies him new encyclopedias— this
time they must cover new aspects of familiar ground.
When they deal with government they cannot deal with
it as something to be subverted by political warfare. When
they deal with physical plant it is not as something to be
bombed. They must deal with those characteristics of both
government and industry which the occupant must con-
serve for his own use. When they deal with a railroad
they cannot repeat the data necessary to blow it up or the

■ ibid., pp. Iv, v.

23

STRATEGIC INTELLIGENCE

data necessary to run one’s own military trains over it;
they must deal with such things as its indigenous manage-
ment and must furnish the knowledge to indicate how it
may be put back on its feet.

In the foregoing pages I have endeavored to touch upon
certain kinds of omnibus study, the first examples of which
serve in the main the strategic requirements of war, and
the last examples of which shade off into post-war. Before
leaving the subject, however, I should mention two more
kinds of encyclopedia which are typical of peacemaking
and peace itself. The first can be called the peace hand-
book, the second the general purpose survey.

At the end of World War I, the British delegation to
negotiate the peace came to Paris equipped with any num-
ber of little blue books. Sponsored by the Foreign Office
and used by the delegates, they were what might be called
a peacemaker’s Baedeker . 7 In short, terse paragraphs, and
appendixes containing the most important documents of
state, treaties, etc., they aimed to supply the minimal needs
of the officials charged with drafting the treaties. A brief
of the table of contents for the two volumes on Austria-
Hungary will indicate the general substance of the work.

The study is first broken down according to seven re-
gional components of the former Austro-Hungarian
Empire: 1. Austria-Hungary. 2. Bohemia and Moravia.
3. Slovakia. 4. Austrian Silesia. 5. Bukovina. Transyl-
vania and the Banat. 7. Hungarian Ruthenia. Within
each of the regional sections there is a more or less constant
breakdown according to subject. The section on Bohemia
and Moravia ran to 109 standard-size pages. No one who
read them could possibly have remained in ignorance of
the main ethnic and economic problems which were to
beset the men responsible for drawing the western frontiers

T [Great Britain] Foreign Office, Hutorial Section; Peace Handbooks.
(London, H. M. Stationery Office, 1920).

24

INTELLIGENCE IS KNOWLEDGE
of the new Czechoslovakia, and no one who read them
would fail to acquit himself betteT at the peace table.

There were many other handbooks in the series, and
each emphasized those phenomena of a given country
which were certain to come up in the discussions. For
example, the book on France has a long and detailed sec-
tion on Alsace-Lorraine; the one on Germany has sections
on Silesia, the Kiel Canal and Heliogoland, and the Colo-
nies; the one on Turkey, an excellent treatment of the
Straits question; and there is one entire short study on the
Yugoslav Movement.

Could there be such a thing as a general-purpose hand-
book of peacetime— a handbook which will contain the
knowledge for peace and the knowledge necessary to meet
aggression with dynamic defense? The answer is an obvi-
ous Yes. Such a handbook would be very similar to some
of the encyclopedias already described. Paying for such a
program of general-purpose handbooks is another matter,
especially so in terms of an economy-minded Congress.
Perhaps such a program could be framed within the gov-
ernment where the dimensions of the substantive require-
ments are known and then farmed out to our learned insti-
tutions which in last analysis constitute one of our most
priceless strategic resources.

So far I have confined myself to the form of the basic
descriptive element of strategic intelligence which is
broadest in one dimension and at the same time likely to
be shallow in the other. In a sense, the strategic survey of
war or handbook for peacetime should be conceived of as
an introductory instrument, the sort of study a man goes
to when he is new to a subject. There are at least two other
forms besides the encyclopedia which are worthy of men-
tion: they are the narrow and deep study, and the thing
called "spdt information." Since many of the examples of
the past pages were taken from a war context, these next
will be taken from a peacetime context.

25

STRATEGIC INTELLIGENCE

The Narrow— Deep Study

The national peacetime objectives of this country are
numerous and the grand strategy to attain them a many-
faceted affair. In searching for examples of the kind of
narrow and profound descriptive intelligence to sustain
this strategy one is virtually overcome with the multitude
of possibilities. Everywhere one looks in the world a na-
tional objective is on the block. In the New York Times
for a day taken at random 8 there were between fifty and
sixty news items of concern (varying degrees of concern, to
be sure) to a great many officials of our federal government.
The items in this day’s Times touched fourteen separate
sovereign states, three dependent areas, five areas under
U.S. occupation, and five subjects of importance all the
way across the UN board. Somebody in the government
—who presumably received the news over his own com-
munications before he read it in the Times— had. to initiate
action, continue action, or change the course of the action
he was already taking. It is assumed that this news landed
in Washington against a solidly informed backdrop. If
Washington were prepared to deal with the issues in ques-
tion, what must it have possessed in the way of complete,
applicable, and accurate knowledge?

Under Secretary of State Will Clayton, appeared, accord-
ing to one news item, before the House Foreign Relations
Committee to explain and defend a request for 350 million
dollars for continuing UNRRA functions under a new
policy. One of the beneficiaries of the relief fund would be
China. Mr. Clayton emphasized that the distribution of
relief would be rigidly supervised and controlled by the
United States as benefactor. It may be assumed that in
making his presentation to the Committee Mr. Clayton
knew that there were people starving in China; knew that
the situation was antithetical to certain of our objectives

1 The day wu 26 February 1947.

26

INTELLIGENCE IS KNOWLEDGE
and interests, and that it was in our power to do some-
thing in defense of these objectives and interests.

An important policy decision involving quantities of
the national treasure should be based upon the sort of de-
tailed and precise knowledge characteristic of the descrip-
tive element of intelligence. If this is the case, what kinds
of knowledge on what subjects should Mr. Clayton have
had?

First and foremost he should know how many people
there were in China. He should know this so that when he
knew the second thing, i.e., how many of them were starv-
ing, he would have his own notion of the size of the ca-
lamity. Were 2 per cent starving or were 15 per cent?
Next he should know if the starvation of x per cent of the
Chinese population was something that happened every
year, or if it was something which was happening now
because of special post-war conditions. That is, he should
know how China’s normal or potential food-producing ap-
paratus equated with the requirements of the population.
He would have to know this in order to decide the basic
question— is there any use in our trying to feed the Chi-
nese? For if the local food deficit were chronic and the
Chinese chronically unable to produce enough food and
to amass foreign exchange necessary to import sufficient
foreign food, was there any point in our taking China on
as a permanent charge? If this were the case and a healthy,
unified, and democratic China one of our national ob-
jectives, should we not perhaps go about it in another way?

But assuming that Mr. Clayton’s knowledge assured
him that the situation was special, not chronic, what other
things should he know? He should know how much food
of what kinds would be necessary to alleviate the situation.
He should know how food was normally distributed in
China and if these distribution systems were partially to
blame for the famine. If they were, he should know how
their faults could be overcome with respect to the food he

27

STRATEGIC INTELLIGENCE

proposed to send to China, and whether or not the task of
improving them would in itself be too large to underwrite.
He should also know what kinds of food were acceptable
to the Chinese. Even seriously undernourished people are
astonishingly choosey about the staples of their diet, as was
proved after the last war. He should know— in the event
the Chinese insisted upon rice— if the world rice market
was able to deliver the rice in exchange for dollars and the
things dollars can buy. He should know, in so far as such
things can be known, what internal and what international
political consequences would follow a successful feeding
operation on our part.

To take up the position of relief in China one can imag-
ine Mr. Clayton armed with a study which answered all
these questions and many more. It would be essentially
descriptive. It would also require a large amount of work
on the part of an intelligence staff, for knowledge of the
kind required will not be lying around in neat bundles
ready for the plucking. As to the benefits we might expect
from tiding China over a rough spot, the discernment of
these is a task of appraisal and evaluation and is the subject
of another chapter.

Spot Intelligence

The last category of strategic intelligence— descriptive—
is what the trade calls "spot intelligence," or "Information
Please," or "Ask Mr. Foster." The kind of knowledge
which it supplies is usually in answer to some innocent-
sounding question like: What side of the road do cars run
on in Petsamo? What is the best map of southern Arabia?
What is the depth of water (LWOST) alongside the Jetde
Transversale of Casablanca? Where is U Saw now? What
are the characteristics of electrical current at the commer-
cial outlets in Sidney? How much copper came out of the
Bor mines in 1937? How good is the water supply in
Hong Kong? When did Lombardo-Toledano last go to

28

INTELLIGENCE IS KNOWLEDGE
Venezuela? What are the administrative units of the
USSR? And so on.

With this sort of question, the answer to which is usu-
ally cast in words, there are other questions which are
answerable only by the map, the diagram or plan, and the
photograph. The descriptive element of strategic intel-
ligence must stock such items or know where to find them.

In some cases such questions have a strategic importance,
in many they do not. On the other hand it can be argued
that if an organization can answer all such questions, it
has on file the knowledge to answer more important ones.
Distasteful as the “Ask Mr. Foster” function is to stra-
tegic intelligence, it is probably a legitimate one and the
substantive content an important fragment of the store of
its total knowledge.

From the above it can be seen that in order for us “to
assure ourselves that our cause will not suffer nor our
policies fail because they are ill-informed” our intelli-
gence organizations must be prepared to describe a large
number of phenomena. They must be prepared for more
than this however. For description involves a stopping of
the clock of time and the real clock cannot actually be
stopped. It goes on, and descriptions of the things of yes-
terday are out of date tomorrow. To remedy the defects
inherent in a necessary but artificial stopping of the clock,
a second element of intelligence is essential. This is the
current reportorial element which aims at keeping certain
descriptions up to date.

29

CHAPTER 3

SUBSTANTIVE CONTENT: (2) THE
CURRENT REPORTORIAL
ELEMENT

T he pages immediately preceding have dealt with a
knowledge of things and people as they were at a given
moment of time. The phenomena of life which appear in
the formal encyclopedias can be regarded as frozen in mid-
passage. Such an accumulation of data as has been de-
scribed would be virtually all strategic intelligence re-
quired were it not for the element of motion in human
events. The obvious fact, however, is that practically
nothing known to man stands completely still, and that the
most important characteristic of man’s struggle for exist-
ence is the fact of change. Knowledge devised to fit the
requirements of grand strategy must everlastingly take into
account this fact of change. Keeping track of the modali-
ties of change is the function of strategic intelligence in its
"current reporting" phase.

Before embarking upon an analysis of the areas of hu-
man activity in which change occurs and where intelli-
gence should note the changes, it is worth making the
point that the streets through which change moves are
many-way streets, and there are many kinds of change. For
example, it is as important to know that the standing mili-
tary establishment of a potential enemy power is being
demobilized as it is to know that it is being built up or
merely reoriented around a new weapon or a new tactical
concept. It is as important to know that the level of pros-
perity in a friendly country is rising as it is to know that
it is going on the rocks. It is as important to know of the
emergence of a friendly government in a hitherto hostile
state as it is to know of the overthrow of a friendly govern-

30

INTELLIGENCE IS KNOWLEDGE
ment in a hitherto friendly state. In fact the direction of
change is sometimes more important to know about than
the absolutes of quantity, extent, effect, etc. Thus this
matter of direction, without falling strictly into the area of
content, is one of highest significance.

If the current reportorial phase of intelligence is to do
the job, in what specific areas of human activity must it
observe and report change? Or, put another way, if one
very important part of the intelligence mission is the obser-
vation of day-by-day developments (surveillance) what
phenomena should be put under surveillance? There are
two ways to approach the answer to this question. One
would be to list areas according to their known or foresee-
able priority of interest to the* grand strategy of this
country. If this method were adopted the first area for the
U.S. in a.d. 1949 would necessarily be either that of a for-
eign power’s program of atomic research, biological and
chemical warfare instruments, or in the successes and fail-
ures of the international Communist movement. The
second area might be changes in the armed establishments
of the world, or in the economic well-being of the world,
or in the political stability of the world, or in its moral
fervor to do right. It would take a wise man to set these
priorities, and it is my feeling that the resultant listing
would have neither the cheering element of certainty nor
the comforting quality of logic.

The second way to approach such an analysis of con-
tent would be according to some established and logical
pattern of humanity and human activity— would be to fall
back upon the time-worn rubrics which social scientists
have used for decades. This method has the advantage of
logical order, but it runs the risk of submerging important
matters in a welter of unimportant ones. But since the
object of this chapter was to lay out the substance of one
element of strategic intelligence and was not to serve as an
exhortation to operating intelligence agencies of the mo-

31

STRATEGIC INTELLIGENCE

ment v I will adopt this latter method and follow its formal
subdivisions.

1. Personalities . On the theory that the basic-descriptive
element will have chronicled in its biographical files and
posted in its biographical encyclopedias the names of
people who were important as of a certain date in the past,
the reportorial element must keep track of the goings and
comings and liaisons of these people. More important
even, it must in addition pry beneath the surface of past
leadership to discover the emergent figures of tomorrow.
Who knows the name of the British Prime Minister or the
leader of the French Communist Party in 1960? Who
knows the head of the Soviet Union in 1955? Who will be
the chief of staff of the Yugoslav air force? Who will be
the leaders of a divided Palestine? Who will be president
of Lever Brothers or United Chemical? Who will be the
director of the Pavlov Institute and leader of the Latin
American Confederation of Labor? The men who will
hold these jobs some day are alive at this moment. Where
are they? What are they doing? What sort of people are
they? The future is by no means entirely free to nominate
such officials by random choice. The chances are that the
future will be obliged to make its selection from a fairly
narrow slate of candidates. These candidates are at this
moment the comers in business, in the military, in the
trade union movement, in politics, the arts (let us not
forget Paderewski), education, and the conspiratorial un-
derground. The job is to find out about these emergent
leaders and to watch their progress upward, so that as
revolutions brew and violent or natural deaths approach,
the possible human replacements for the ousted or dead
will be well known.

Since every man is both the product and molder of his
environment, and since no two men are exactly alike, an
intelligence operation to do its reportorial job on men
must know a great deal about them. It must know of their

32

INTELLIGENCE IS KNOWLEDGE
character and ambitions, their opinions, their weaknesses,
the influences which they can exert, and the influences be-
fore which they are frail. It must know of their friends
and relatives, and the political, economic, and social milieu
in which they move. Only by knowing such matters can
the emergent character be invested with the dimensions of
leadership, and only by knowing such matters can one
guess at the sort of change toward which the new leader
will strive when he comes to power.

2. Geographic . On the theory that there are already de-
scriptions of what I have earlier called the physiques of
other countries, the devotees of current reporting must be
continuously improving and extending these descriptions.
Not merely must they chronicle thfc new changes that man
is making upon the landscape— many of which appear in
section 4 below, but also they should be abreast of the
widening of the horizons of geophysical knowledge. What
new facts are being learned or can be observed in such
matters as erosion rates, the silting of rivers and harbors,
weather, beaches, water power sites and supplies of drink-
ing water. What is being discovered or can be noted in
the fields of hydrography, geodesy, and geology.

3. Military. Again on the assumption that the armed
force-in-being, as outlined in the preceding chapter, has
been carefully described as of a certain date, the reportorial
element has the task of keeping track of developments
within the establishment. It must know of new legislation
which will set the size and quality of the force for the year
or years to come. It must keep track of recruitment poli-
cies and their success and failure. It must keep track of
changes in the training of the enlisted man and the officer.
It must know developments in the indoctrination of
troops, the social strata from which the corps of officers is
recruited, the economic status of men and officers. No
matter what the difficulties, it must try to keep track of
those changes which the other country properly regards as

33

STRATEGIC INTELLIGENCE

its own military secrets: such things as new fighting ships,
new types of aircraft, new weapons of all horrendous sorts,
new devices for improving fighting efficiency, 1 changes in
morale and in the loyalty of the force to its government in
its regional, its political, its religious, and its nationalistic
orientation.

4. Economic . Again on the theory that the handbooks
have stopped the economic machine at a certain point in
time and described it, the reportorial element has the task
of keeping track of current economic developments. It
must note the emergence of new economic doctrines and
theories— for purposes of example I cite the range which
lies between Keynesian theory, down through Ham and
Eggs, to the Technocrats. It must keep careful track of
changes in the housekeeping side of the armed forces, ad-
ministrative reorganizations and the like, and it must note
changes in government economic policy— policy affecting
industry, the organization of business, agriculture, banking
and finance, and foreign trade. It must know the changes
which are occurring in the size and distribution of national
wealth and income, of changes in the standard of living,
wages, and employment. It must watch for new crops and
the developments of new methods of agriculture, changes in
farm machinery, land use, fertilizers, reclamation projects,
and so on. It must follow the discovery of new industrial
processes, the emergence of new industries, and the sink-
ing of new mines. It must follow the development of new
utilities and the extensions of those already established. It
must follow changes in the techniques and implements of
distribution, new transport routes and changes in the in-

1 It is hard to say, and perhaps footless to try to decide whether such
matters as non-fouling marine paint, atabrine, radar, the use of blood
plasma, and any number of similar matters belong under the military or
some other heading. Perhaps the decision as to their appropriate alloca-
tion should be made according to the degree of secrecy with which their
sponsors hold them. Plainly it seems that highly classified things like
espionage and counter-espionage, belong hers.

34

INTELLIGENCE IS KNOWLEDGE
ventory of the units of transportation (autos and trucks,
locomotives and cars, transport aircraft, canal boats, and
blue water merchant shipping). Perhaps most importantly
in the age of atomic fission, it must note discoveries in new
natural resources, notably at the moment the discovery of
high-grade uranium deposits.

5. Political. The reportorial element must pay strictest
attention to changes of a basic constitutional nature and
events such as those which we saw occur in post-war
France and Italy, and which may soon happen elsewhere
in the world. It must observe how political power units
are lining up on significant issues, and how such units may
be splitting up into factions, disintegrating into other
groups, or joining them en bloc. It must watch changes
in the basic political doctrine of these groups. It must take
note of changes in relationship among the central, the re-
gional, and the local political authorities, and the major
shifts in policy toward domestic, foreign, colonial, and im-
perial problems. It must follow new legislation which will
affect political expression, to make it either more free or
less free. It must watch national and local election results
and the emergent political figures mentioned earlier. It
must follow the course of new pressure groups and other
types of organizations which are capable of political influ-
ence from outside of party framework. It must know of
new governmental and administrative techniques.

6. Social. Perhaps the most important single social phe-
nomenon that the reporting element must watch is that of
population. It must watch it in all its aspects: its growth
or decline, and its rates of growth and decline; changes in
its age groups, its occupational groups, and consumer
groups. It must watch for changes in its distribution be-
tween city and country, between region and region. It
must take note of migrations within the country and emi-
gration from the country, and until time and permanent
residence envelops them, it must have an eagle eye out to

35

STRATEGIC INTELLIGENCE

displaced persons. There will also be changes in the social
structure which are closely allied to certain phases of eco-
nomic change, and which must come under constant ob-
servation. What groups are emerging to social and
economic eminence, what groups or classes of groups are
sinking? What are the developments within that particular
element of population known as the labor force? The
reportorial element of intelligence must keep track of its
changes in size and structure, and above all must watch
how it is organizing, and under what leadership, for its
struggle with management.

What is happening to church membership, who is join-
ing clubs and what kind of clubs are they, who is founding
new lodges, secret societies, and cooperatives? Intelligence,
in this aspect, must also know a large number of other
things about the society, such as changes in the way of liv-
ing, development of new housing, changes in the home
economy and family diversions. It must be aware of
changes in taste, manners, and fashions. It must follow the
program of educational institutions of all levels, and worry
almost as much about the changing content of the ele-
mentary history textbooks as it must about changes in the
curricula of the highest graduate and professional schools.
It must concern itself with government policy toward edu-
cation at all levels and with changes in the relationship
between government on the one hand and non-govern-
mental organizations, such as the churches, the trade
unions, the clubs and societies, on the other. It must know
of the changing relationship among minority groups
within cultural, social, and economic groups, and it must
watch for the changes in the statutory and judge-made law,
which in turn change the course of human behavior
throughout the population pyramid.

7. Moral . Within the wide range of matters moral the
reportorial element must heed changes in the basic doc-
trines of life: the waxing or waning or religiosity, of pa-

36

INTELLIGENCE IS KNOWLEDGE
triotism and nationalism, of belief and confidence in the
regnant order and in the national myths. It must know of
the change in popular attitudes toward the purge of unde-
sirables, the nationalization of private property, party
government, civil marriage, lay education, rights of mi-
norities, universal military training, to hit a few of the
high spots.

8. Scientific-Technological. Since much of the world to
be will be the product of science and technology, the re-
portorial element must watch these with sharpness. It must
know of any developments that might be of significance
for foreign policy considerations in mathematics, physics,
chemistry, zoology, geography, oceanography, climatology
and astronomy. It must know what is happening in the
realm of the social sciences. What are the students of so-
ciology, economics, psychology, geography, law, and his-
tory, and so on coming up with? What new ideas are they
getting that will some day have the influence of the dis-
coveries of a Locke, a Rousseau, a Darwin, a Pavlov, a
Freud, or a Haushofer? What is happening in the medical
schools and the clinics; what are the new diagnoses, the
new remedies, the new treatments? What is going on in
the realm of telecommunications: the telephone, the tele-
graph, the submarine cable, and above all, radio? What is
happening in the world of cartography? What new areas
of the world and phenomena of life are being charted on
the map? What new purposes are old theories being ap-
plied to, what new uses for old materials? How are any or
all of these being applied to armaments?

The preceding paragraphs cover a staggeringly large area
of continuing human activities. I have written them thus
in an endeavor to portray the dimensions of subject matter
and not as an exhortation to the reporters of the surveil-
lance force to keep every square inch of it under active and
systematic observation. It should be thought of as describ-
ing most of the real and many of the potential responsi-

37

STRATEGIC INTELLIGENCE

bilities of the reporting function. The question which at
once arises is what fragments of the enormous whole are
actually to be put and kept under scrutiny. There is no
categorical answer. The only answer is one to be put in
the form of a differential— namely: only such fragments
as are positively germane to national problems which are
up now and other problems which appear to be coming.
Those should be dealt with first which are matters of es-
tablished national importance. They will vary from
country to country and from time to time.

For instance, what is going on in the French General
Confederation of Labor, in the Politburo, in Zionism, in
the Peron government, in the Philippine cabinet, in the
uranium mines of Joachimstal, Czechoslovakia, in the Pas-
teur Institute, is of greater national significance than the
extension of the Ouagadougou Railway, the new budget
of Mexico, or the changing literacy rate in China . 2 How-
ever, this is not to argue that matters which in the short
term are as relatively unimportant as the last example may
not some day in some circumstances deserve first priority
treatment. Nor is it to argue that all matters of first or
even second degree importance are to be identified by
some simple rule of common sense such as the "national
interest" rule I have given. Perhaps the greatest difficulty
which the surveillance force must face in carrying out the
reportorial function is not so much the amassing of knowl-
edge on present and foreseeable problems as in looking out
into the future and in trying to identify future problems.

As the reporting element carries out its task it constantly
adds freshness to the content of the basic descriptive ele-
ment. It does more than this, for in keeping otherwise
static knowledge up-to-date it maintains a bridge between
the descriptive and what I have called the speculative-
evaluative elements— a bridge between past and future.

* In the leu than three years which have elapsed since this was first
written, several changes in priority have become in order. For instance, no
one would today (September 1950) put the China item in second place.

SB

CHAPTER 4

SUBSTANTIVE CONTENT: (3) THE
SPEC ULA T I VE-E VA L UA TI VE
ELEMENT

T o introduce this most important and most complicated
element of strategic intelligence a few fairly obvious
facts are worth a brief restatement.

The world with which the United States must do busi-
ness is very largely composed of separate sovereign states,
and the kind of business the United States must do ranges
through all the possible stages between most pacific and
most belligerent. By many and diverse means we try to
promote a better world order. We undertake and make
good on collective agreements reached in the UN; we
undertake and make good on bilateral and multilateral
agreements with other states and groups of states; we exert
pressures of many sorts in behalf of world well-being and
our own security; and we go to war. In carrying out this
vast amount of enormously complicated business we must
be foresighted. We should be prepared for the future; we
should put every effort into being well-girded for its con-
tingencies; we must not be caught off balance by an un-
expected happening. In the perfect grand strategy nothing
that happens can have been unexpected.

The problem of this chapter is the analysis of what the
United States must know in order to be foresighted— what
it must know about the future stature of other separate
sovereign states, the courses of action they are likely to
initiate themselves, and the courses of action they are likely
to take up in response to some outside stimulus. The
knowledge which is at issue is far more speculative than
that discussed in the last two chapters, viz., the basic de-
scriptive, and the current reportorial. The obtaining of it

39

STRATEGIC INTELLIGENCE

puts a very high premium on the seeker’s power of evalua-
tion and reasoned extrapolation, and that is why I have
called it the speculative-evaluative element of strategic
intelligence.

What knowledge should the U.S. have about the future
of other states in order to have the requisite foresight?

Let me first create a hypothetical state, Great Frusina,
to use in giving the answer to this and subsequent ques-
tions.

About Great Frusina the United States should know
two things. These are: (1) What is Great Frusina’s stra-
tegic stature 3 (2) what specific vulnerabilities does Great
Frusina possess which qualify her strategic stature? As I
hope to demonstrate, if the United States can answer these
two questions, it will be in a fair way to answer the next.
This one is: What courses of action will Great Frusina be
likely (a) to initiate hereself, and (b) to take up in response
to courses of action initiated elsewhere. To produce an-
swers for all these questions is difficult, but that is not the
problem here. The problem here is to put the finger on
the kinds of things we must know and the method we must
employ before we begin to produce the answers. The prob-
lem is to identify the kinds of knowledge which are at
once the solid runway from which our speculations must
take off and the compass which must guide them in flight.
Identification of such knowledge cannot proceed until at
least two of the terms of recent coinage (strategic stature
and specific vulnerability) are given a bit more precision
and definition.

Strategic Stature 1

By strategic stature is meant the amount of influence
Great Frusina can exert in an international situation in

1 One of my critics has objected mildly to my use of the word
stature. As something of a purist he correctly points out that it does not

40

INTELLIGENCE IS KNOWLEDGE

which the United States has a grand strategic interest.
This is a broad statement, and not broad by inadvertence.
For instance, by international situation I mean any of
the differences of opinion, misunderstandings, disputes—
minor and major— which may occur between sovereign
states and which have a remote or immediate bearing upon
world security. I mean any of the dislocations in the re-
lations between states of the world which by their nature
must have an adverse effect upon Great Frusina’s security
and material welfare. Given the oneness of the con-
temporary world there will be few situations which
Great Frusina can neglect as unrelated to her security
and welfare and a great many in which she will there-
fore exert some sort of influence. By influence I mean
influence through any of the instrumentalities that states
employ in peacetime or wartime— influence through moral
suasion, propaganda, political and economic threats, in-
ducements, and actual penalties; through acts of reprisal
(in the non technical sense); threats of hostility, and war
itself. Strategic stature is thus the sum total of sugar sticks
and big sticks which Great Frusina possesses, to which
must be added her willingness to use them and her adept-
ness in using them.

To get at strategic stature there are a number of things
you must know, and the first of these is the probable
“objective situation” 2 in which Great Frusina may be ex-

quite comport with the dynamic role I have assigned to it, that it is a
word more closely allied to stasis than action. My Teply is that contem-
porary usage permits such an expression as ‘'the stature of British diplo-
mats,” by which is meant something more than their height, girth, and
weight. Diplomatic stature includes the tact, persuasiveness, ingenuity, and
wisdom as these arc manifested at the conference table or elsewhere. Stature
in this sense is the latent power which entrance into the diplomatic ring
will make dynamic.

fl By "objective situation" I mean the situation as it exists in the under-
standing of some hypothetical omniscient Being. I mean the situation
stripped of the subjective characteristics with which a prejudiced human
observer is almost certain to endow it. I use the word "probable,” be-
cause, whereas knowledge of the objective situation is of highest desira-

41

STRATEGIC INTELLIGENCE

pected to exert influence or throw weight. There are at
least two elements in any objective situation which are
likely to be ever-present; they are the element of geo-
graphical location and the element of time. There are
other elements which are likely to differ from one situa-
tion to another. To cite at random a few for purposes of
illustration is to list such intangibles as the degree of
real or fancied gravity involved in the situation and the
Great Frusinan nation’s popular appreciation of the grav-
ity; the degree of the nation’s acceptance of the sacrifices
it must make to liquidate the situation; the power line-up,
that is, what friends can Great Frusina count on for sup-
port in the situation and how much support, what friends
can Great Frusina's opponent count on for support?

The constant and variable elements in the situation
which are hinted at above are often of overriding impor-
tance. That is, the geographical position of the contest-
ants, time, the power line-up may rule, and the situation
be liquidated in terms of them. 8 But many situations arise
in which these elements do not rule and in these latter
instances there are two more extremely important things
you must know before you can begin to gauge Great
Frusina’s strategic stature.

The first of these is the weight, applicability, and effec-
tiveness of Great Frusina’s non-military instrumentalities
of policy and strategy. The second is what people have
called Great Frusina’s war potential . Let us take them up
one at a time.

bility, any non-omniscicnt Being (i.e. any trail human being) probably
can never apprehend the true objective fact. He should, however, strive
until it hurts.

"For example, if the government of Liberia became outraged at the
government of Paraguay (or vice versa) for any given reason, one could
assume that the state of outrage would pass without much having been
done about it. In the years not so long back, when the sovereign com-
ponents of the world were less tightly knit and the projection of power
by even the greatest states was a slower and more cumbersome process
than it is today, similar self-liquidating situations were more common.

42

INTELLIGENCE IS KNOWLEDGE

By Great Frusina’s non-military instrumentalities are
meant the range of levers, short of the great lever of mili-
tary operations, which lies between such a simple thing as
a properly worded and properly delivered formal note of
objection or invitation, and such a complicated and dan-
gerous thing as an embargo, blockade, or other stringent
kind of economic sanction. Also are meant such things as
our telling Cuba that we dared not continue shipment of
thereapeutic narcotics to her as long as she afforded haven
to Mr. Lucky Luciano— a man well known to us as a dope
peddler and general bad egg, whom one of our states had
been at great expense to catch, indict, convict, jail, and
later deport back to Italy. We did not want Mr. Luciano
in our backyard and we used a mild non-military instru-
mentality to get him out of it.

The Soviet’s use of the Comintern and now the Comin-
form, the paraphernalia of party infiltration and front or-
ganizations, state trading, and even the World Federation
of Trade Unions offer corresponding cases in point. Great
Frusina will have such levers to push, such strings to pull,
and such needles and ice picks to manipulate. Knowledge
of them and their weight, applicability, and effectiveness
constitutes part of the knowledge necessary to estimate her
strategic stature in a given situation the objective facts of
which are already discernible.

By war potential is meant the possible power to make
war. To be somewhat artificial, it may be useful in talking
of war potential to distinguish between Great Frusina’s
actual military force in being and her mobilizable military
force. This distinction is artificial because much of the
force in being is itself not completely and uniformly mo-
bilized; it is not fully prepared to get up and go at a
moment’s notice . 4 It must be topped off, so to speak, and

4 Our garrison troops on the Island of Oahu were supposedly a
mobilized force on the morning of the Pearl Harbor attack. Yet while the
attack was going on some of these troops were in process of drawing weap-
ons from a supply sergeant. The latter, an orderly man, was requiring

43

STRATEGIC INTELLIGENCE

this topping off— i.e. the issuance of battle equipment, the
moving up to the line of attack, the arrangements for sup-
ply and auxiliary services, etc.— is itself indistinguishable
from the essential and characteristic aspects of mobiliza-
tion. But even though much of the force in being needs
some finishing touch, there are likely to be units which
are completely mobilized and ready to start shooting.
Hence the distinction.

Now the problem before us is what must intelligence
organizations know with respect to the situation, the non-
military instrumentalities, the force in being, and the war
potential of Great Frusina so as to make an evaluation of
her strategic stature in a foreseeable or given situation.

As to the situation. Realize that it has not yet arisen
and that the first big question for intelligence is to try to
imagine what it will be like when it does arise. To sharpen
the imagination intelligence must have a great deal of the
descriptive and reportorial knowledge discussed in pre-
vious chapters. For example, it must know a great deal
about the political and economic structure of Great Fru-
sina, about internal political and economic tensions, about
her foreign relations, and the apparent grand strategic plan
within which she is working. Intelligence must know a
great deal about the strategic geography of all parties to
the situation, and must have some sort of rational basis
for calculation of the time factor. Intelligence’s reportorial
staff must have kept the organization fully informed of
developments as they watched them clandestinely and
overtly, so that the speculative take-off will be from the
most extreme point on the runway and the flight of imagi-
nation aimed in what will prove to be the truest direction.

It is perhaps worth mention here that calculations on
strategic stature which are not based on some sort of an-

each of the soldiers to sign a memorandum receipt for what he took.
This is an example of what I mean by "topping off" in an extreme
situation.

44

INTELLIGENCE IS KNOWLEDGE
ticipated, imagined, or rationally assumed situation are
not likely to be meaningful. It is the context of the
situation alone which gives point and meaning to the sub-
sequent elements of the speculation. To talk about non-
military and military instrumentalities without setting the
limits of the situation in which they are to be used, to
talk of them as if they would be the same for all situa-
tions, is to me, without much sense. There can be no
such thing as a calculable national potential— potential for
the achievement of goals by peaceful or warlike means— so
long as the calculation proceeds in a vacuum. Only when
you fix the adversary, the time, place, and the probable
means to be used can the calculation have point.

As to the non-military instrumentalities: again, knowl-
edge of them is based on what intelligence has been able
to find out about Great Frusina’s inner stability and
strength and the ways she has conducted her international
business in the past. Which of these instrumentalities will
she use and with what weight and effectiveness will she
use them? Intelligence can hazard a guess only when its
knowledge of Great Frusina is comparable to that of her
own minister for foreign affairs and her own chief of state.
Intelligence may hope to possess such knowledge only as
it has studied deeply and systematically her polity, society,
economy, and the moral tempo of her people, and as it
has been able temporarily to transmute itself into the
Great Frusinan foreign minister and see the situation from
his particular perspective. This again is the kind of knowl-
edge dealt with in the two preceding chapters. Ideally it
is coldly objective and factual, it is accurate and complete,
up to the moment.

In actual practice it is often none of these things. No
matter how hard intelligence personnel try, no matter with
what skill and insight they work, they cannot objectively
and factually describe everything the way they might
choose. Certain phenomena elude description. Maybe

45

STRATEGIC INTELLIGENCE

they are supersecret and have been successfully concealed
from sight— like the Japanese shallow-water torpedo. Maybe
they are there, and always have been there, for anyone to
see, photograph, measure and tabulate, but have gone un-
noticed for a multitude of reasons. Take for example the
little colony of Sardinian -bom Italians which has existed
in Tunisia; take the beaches of a number of South Pacific
islands; take the possible axle-loadings and clearances on
Balkan railroads. Still again, maybe they were always there
and have been accurately described, but are no longer
open to re-examination and the published descriptions
have been lost. Faced with the necessity to provide objec-
tive and factual descriptions of such phenomena, intelli-
gence simply cannot deliver; it inevitably falls back upon
the sort of description which is a small speculation in it-
self. It may be an interpolation between two known and
related phenomena, an extrapolation from an established
base, a pure deduction, or a depiction from analogy.

As to war potential: First, your knowledge of the partly
and wholly mobilized force in being will have been sup-
plied by the people who report such matters. In the
nature of things, the reporting people of the intelligence
organization in question are the military, naval, and air
attaches, sent openly to Great Frusina, who are permitted
to know certain fairly large brackets of data about Great
Frusina’s military establishment. Great Frusina permits
this in exchange for similar knowledge from the countries
to which she sends her own military attaches. Characteris-
tics of her armed forces such as their newest weapons, the
techniques of their use , 5 and new tactical doctrine which
Great Frusina regards as a great national resource and
capable of being kept secret, she tries to keep secret. When

■To be a little more explicit, the U.5.5.R. is known to have a high
ability in the use of rockets, but exactly how it uses this weapon is not
known. That the U.5. has radar bombing equipment is generally known
but the technical use of that equipment is regarded as a military secret.

46

INTELLIGENCE IS KNOWLEDGE
these matters are discovered and reported, therefore, their
discovery is often a matter for clandestine intelligence op-
erations. As a general proposition every country knows a
great deal about all other countries* forces in being and
a great deal about most of their weapons. What they are
likely not to know about are weapons of a highly effective
nature which Great Frusina has held so closely that even
her own troops have not been permitted to practice with
them and learn them. 8

To ascertain Great Frusina’s mobilizable military estab-
lishment, or as it is called, war potential, is a very large
order. Were it not the single most important element in
Great Frusina*s strategic stature and an absolute must for
her opponents, the opponents would not ever attempt the
calculation. But in as much as naked power, or the threat
of it, is all too often the force which decides international
disputes or liquidates situations such as those I am talking
about, it is mandatory that we have some reasoned estimate
of the amount of naked power Great Frusina can muster
under given conditions.

I say that the computation which intelligence must at-
tempt is a large order. I say this because it involves striv-
ing for an answer to the following prodigious question:
What amount of active military power, or better, lethal
energy, can Great Frusina dig out of herself; how many
men and how well trained to fight in ground, air, and
naval units armed with all the complicated weapons
of modern combat can Great Frusina produce in what
amounts of time; how much such force can she be pre-
pared to project to the most strategically advantageous or
necessary battleground and be prepared to maintain there?

What must intelligence know to answer such a question?

1 The alomic bomb is of course the outstanding case in point. You
would have a very difficult time in finding out even the names of the men
who knew how many bombs were in existence, and an equally difficult
time in naming the men who know how the bomb worked.

47

STRATEGIC INTELLIGENCE

It must know a great many facts and it must know a method
of combining them. It must know a very great deal about
Great Frusina's actual and latent resources , 7 and it must
have the will, the wisdom, and the highly technical skill
to arrange its knowledge of these facts as Great Frusina's
General Staff and her Office of Production Management B
will normally have arranged them before they made their
fateful decision. At no place in the intelligence operation
is the professional training of the intelligence producer
of more importance. The job of synthesis upon which he
is embarking is one which requires of him the very highest
competence in one or more of the sciences, of politics, eco-
nomics, geography, and the military art. He should not
undertake it unless he has an easy familiarity with the
literature and techniques of the relevant disciplines.

What about Great Frusina’s resources? I will take them
first and I will be brief about them— not because they are
unimportant— but because people who deal with mobiliza-
tion and the foundations of national power deal with them
endlessly. So endlessly, in fact, that one sometimes gets the
impression that the matter of war potential is simply a
matter of identifying quantities of men, of steel, of kilo-
watt hours, of machine tools, railroad lines and trucks, etc.,
adding up the quantities, and deriving from the resultant
sum a sort of index number which is meaningful. I cannot
agree with this method of computing war potential. Thus
without giving the impression that you have all when you
have a line-up of Great Frusina’s actual resources let me
name them.

T In my opinion the most egregious error in war-potential computation
is the error of confining one’s attention to resources and neglecting the
country’s power to combine them to get an appropriate end-product. On
a straight numerical calculation of resources there is likelihood that India
and China might emerge as a threat to the U.5. or U.S.5.R. No conclu-
sion could be more useless.

■See U-S. Bureau of the Budget, The United States at War (Washing-
ton, D.C., G.P.O., 1947) for the fullest and the only official account to date
of the process of our mobilization. This document is required reading for
all students of war potential.

48

INTELLIGENCE IS KNOWLEDGE

The first is her geographical location and the quality
and extent of her terrain. Next is her population, quanti-
tatively speaking, especially that part of it which lies in the
age bracket 17 to 45, and qualitatively speaking, its health,
vigor, and degree of general and technical education.
Thirdly are the raw materials and power sources she pos-
sesses or has unequivocal access to: mineral (including
uranium), forest and fishery resources, water power, etc.
Fourth are food and feed stuffs; next, standing industrial
plant and the means of distributing the finished product.
Sixth is the transportation net and the inventory of vehi-
cles; seventh, the political structure of the state and its
stability; eighth, the social structure and the inventory of
virtues which as social beings the population possesses;
ninth, the moral quality of the people and the kind of
values for which they are prepared to make sacrifices.
Sometimes this list is shortened down to the three primal
items: manpower, raw materials, capital equipment; and
sometimes it is spun out, as anyone can see it might be,
to fill pages and pages.

If intelligence knows the facts or approximations thereto,
which are indicated in the list above, it has a part of the
knowledge involved in a war potential computation. But
it must also be aware of what the process of mobilization is
and what it involves. Intelligence must know this before
it can apply a method to the data and get a useful result.
Let us say then that mobilization is in essence a matter of
internal national adjustment or readjustment. A country
organized for the welfare of its citizens and for its security
must now put security way out in front and the citizens'
welfare an appropriate distance in the rear. And a country
which has never seemed to put the welfare of its citizens
in front will push this consideration even farther to the
rear.

This means that a certain large percentage of the most
productive age group of the population— the men and

49

STRATEGIC INTELLIGENCE

women between 17 and 45— are taken out of civil life and
put in uniform. Before mobilization is done, this group
may be 10 per cent of the total population or even more.
It also means that this group (as a group) is supported in
terms of food, shelter, clothing, medical care, transporta-
tion, communications, and insurance at a higher average
level than it enjoyed in civil life. Lastly it means that this
group is furnished with the complicated and expensive
implements of war and is taught to use them in the most
effective manner. To this situation there must be adjust-
ments. What are the adjustments? How successful is Great
Frusina likely to be in making them? These two questions
are the points of departure for gauging the net effective-
ness of mobilization.

The adjustments in question must take place first within
Great Frusina’s polity. Even though her government may
be as dictatorial as Hitler’s in 1936, there still must be
political loin-girding. The less concentrated the political
power of peacetime, the greater must be the adjustment,
for the measures Great Frusina is to take elsewhere in the
rearrangement of her national life require that the execu-
tive arm of government be given almost plenary powers.

To begin the estimate of Great Frusina’s capacity to
mobilize, intelligence must have at hand as full a cata-
logue of political knowledge as may be and with this
knowledge intelligence must endeavor to foresee the de-
gree of success that the Great Frusinan statesmen may
achieve in adjusting the peacetime polity to fit a condi-
tion of war.

The second and most important adjustments which the
new government must now initiate and supervise are the
adjustments in Great Frusina’s economy. Before intelli-
gence looks at specific sectors of the economy in order to
find out how they are doing, there are three things about
it intelligence must know. These are overall things which
will influence every decision taken with respect to war

50

INTELLIGENCE IS KNOWLEDGE
production and the civilian standard of living, which in
effect will almost predetermine the magnitude of mobilized
power which the nation can muster. These three things
are (1) the amount of fat on the economy, (2) the amount
of slack in the economy (this could be considered another
kind of fat), and (3 )the amount of flexibility of which the
economy is capable.

By fat , I mean such things as some of the things Britain
had at the start of World War II: extensive external
assets, a large merchant marine, access to necessary raw ma-
terials and the credits to buy them without going into cur-
rent production, a large and up-to-date supply of capital
equipment, a large inventory of finished goods, a national
diet of three to four thousand calories per day, etc. Im-
portant elements of German fat may be said to have existed
in the excess capacity of machine tools, a large amount
of brand new plant ^and new housing. The Italians had
practically no fat, indeed little enough lean.

By slack , I mean such things as the 40-hour week, twelve
to sixteen years of education for youth, small proportion
of women in the labor force, unemployment of both labor
and capital, only partial utilization of equipment, etc.

By flexibility, I mean the capacity of the economy to beat
plowshares and pruning hooks into swords, and that in
jig time. I mean the ability of the technicians to make
typewriter factories over into machine gun factories, and
put the manufacturers of dry breakfast food into the shell-
fuse business. I mean the ability to make synthetics from
scratch where the natural sources have dried up. B When

■As might be imagined, war-potential computers are of many types—
among them is one class which is constantly trying to find a key item in
the mobilizaLion process which will serve as an index to the whole diffi-
cult process. Some of this gToup hope to find the answer to their prayers
in the national income; that is, they are hoping to find a way of cor-
relating national income to war potential, so that when the former is
known, the latter too is known. Others feel this way about kilowatt-hours.
There are several other schools. It has seemed to me that their neglect of

51

STRATEGIC INTELLIGENCE

you have the facts to calculate the fat, slack, and flexibility
of the economy you are armed with a sort of basic knowl-
edge which makes the pursuit of further economic
knowledge profitable.

Adjustments within the economy must take place along
two main lines. The economy must produce a vastly in-
creased amount of goods, many of which are munitions,
and at the same time the economy must provide a toler-
able standard of living for the civilian population. To ac-
complish these ends the economy must be pretty severely
shaken. What must intelligence know to gauge the extent
of the shake-up and the results?

It must know how enlargements in standing capital
equipment, power resources, and in the labor force 10 are
being contrived; it must know how strategically-necessary
raw materials are being stockpiled, and for those in short
supply, what success is attending the development of sub-
stitutes . 11 It must know how speedily and efficiently heavy

other general factors, particularly this factor of flexibility of the economy
makes their conclusions peculiarly vulnerable.

10 With respect to German mobilization for World War II, it is inter-
esting to note that up until 1936 the Nazis had been bedeviled by unem-
ployment and had partially mended matters by contriving the "Kuchen,
Kinder, Kirche" slogan for women. German women under this party
exhortation went back to the kitchen and left jobs open for the men.
When mobilization began (it was not known as such) in 1936 and the
economy could have advantageously used a larger labor force, the Party
did not dare, for political reasons, welch on the slogan and call the women
back to the factories. Certain types of economist who seldom bow to
anything but a straight economic consideration may mull this over with
profit, for here is a case where a political commitment ruled even though
there was a significant economic penalty attached. See Frank D. Graham
and J. J. Scanlon, Economic Preparation and Conduct of War under the
Nazi Regime (mimeographed report of the] Historical Division, War De-
partment Special Staff, Washington, D.C., April 10, 1946). Cited here and
elsewhere by written permission of the issuer.

11 In preparing for World War II, the Germans had to make very
extensive adjustments of this sort. Foreseeing shortages in crude oil,
natural rubber, high-grade iron ore, sulphur, copper, natural fibers and
a number of other items, they made advance provision. They developed
processes for the production of synthetic oil, rubber, and fibers; they
developed methods for utilizing their own low-grade iron deposits, and
found adequate substitutes for materials they could not synthesize or

52

INTELLIGENCE IS KNOWLEDGE
industry is being changed over from the manufacture of
the machines of peace to the engines of war, and how
deftly light industry is being shifted from consumer dura-
bles to shell fuses, range finders, radar components, and
small arms. It must know these things— in so far as they
may be known or estimated— and hundreds like them.
Then it must be able to gauge how well the government
is handling its share of the adjustment: how it is allocating
raw materials, making its contracts with private enterprise,
financing essential blocks of war industry, arranging for
the equitable distribution of scarce consumer goods, and
curbing inflation. It must know how tolerable the gov-
ernment is able to make an otherwise intolerable life to
the civilians who must produce the implements of war,
suffer the economic hardships of war, bear its tragedies
and still be denied the incentives of active participation.

None of the things that I have mentioned above can
be known in the same way that one can know the number
of miles of paved street in City X or the number of sugar
beet refineries in County Y. To possess the knowledge
necessary to estimate economic war potential, intelligence
must have far more than a checklist of capital goods, labor
force, and raw materials; it must have a great deal of
general wisdom about the capacity of Great Fusina to pull
these resources together, the strength of its political au-
thority, its unity and resolve, its managerial competence.
The intelligence worker must have a willingness to trans-
mute himself into the Great Frusinan who is deputed to
boss the mobilization. He must realize that the issues he
is facing up to are issues of the magnitude of national sur-
vival and that he may pull any trick in the book— dirty,

stockpile. Allied intelligence underestimated their capacity to do these
things. It tended to speak of the shortages themselves as top items in the
list of German specific vulnerabilities. This was not really the case. The
real vulnerability lay in the pool of manpower, too large a portion of
which had to be allocated to the relatively inefficient production of substi-
tutes for the short commodities.

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STRATEGIC INTELLIGENCE

unorthodox, "unsound* ' in classical terms, and illegal— if
it will get him his results.

The third major group of adjustments attendant upon
mobilization and about which intelligence must know is
the group of social adjustments. It must have knowledge
of them if it is to complete its calculation of war potential.
It must know how the people will adjust to the loss of
luxuries, amenities, and even necessities; how they will
react to poorer if not less food, less clothing, more crowded
living conditions, and less civil liberty; how they will take
the departure of their young people, the disruption of
families and family businesses, and the grim prospect of
casualties. As in the case of economic adjustments few
of these things can be definitely and positively known. In-
telligence must settle for approximations which emerge
sometimes from devious indirect methods of inquiry. If
it cannot find out by public opinion poll, for example,
exactly how people are reacting to rationing, it may find
indirect evidence thereof by following changes in govern-
ment rationing regulations. These may be available in the
newspapers and may indicate in so many words that the
black market is booming or that civilian compliance is
high. One cannot stress too heavily the importance of the
indirect approach where the direct one is impossible, nor
can one overstress the fact that the devising of the indirect
approach— "formulation of the method" it would be called
in formal terms— is itself an act of intelligence and an es-
sential part of the whole intelligence process.

The last category of adjustments which the Great Fru-
sinans must make and of which intelligence must take note
are those within the code of their national morality , within
their established values of good and bad. Here, perhaps,
are some of the most difficult tasks which intelligence
must face and some of the most important to solve. On
the assumption that intelligence can put the finger on the
accepted moral values of life in peacetime, and on the

54

INTELLIGENCE IS KNOWLEDGE
assumption that these values are not all of them values
which will forward victory in war, the problem for the
government is to try to alter these values or remodel them.
The problem for intelligence is to tell how the pepole will
react to these attempts. For example, let us suppose that
the Great Frusinans were brought up on the message of
Jesus, how easily will they make the transition to a war
morality where all evil things are pragmatically, at least,
justified? How many people are going to be pacifists or
conscientious objectors, and if any large number are, how
will their point of view affect the success of mobilization?
Or suppose Great Frusinans, like some of the Orientals,
view the business of staying alive with apparent indifference;
as soldiers do not expect to survive a war, indeed oFten seem
to welcome, if not actually court, death, what can intelli-
gence discern in this attitude which will qualify its overall
guess on war potential? A correct estimate along these
lines in re Japan, for instance, would have told us much
about the long-range capabilities of its air force.

The preceding pages have been addressed to the first
of two questions posed with respect to mobilization; What
adjustments must Great Frusina accomplish in turning
from peaceful pursuits to preparations for the use of armed
power? The second question is yet to be answered. It is:
How successful is she likely to be? Since we are talking
primarily about knowledge of mobilization and not the
process itself this question might better be put: What must
you know to estimate the success of Great Frusina’s effort
to mobilize?

You must know with as much certainty as possible Great
Frusina’s own appraisal of the situation against which she
is prepared to mobilize. How do the elements of time and
space (geographical relationships) shape up in Great Fru-
sina’s probable calculations? Has she the time to prepare.

STRATEGIC INTELLIGENCE

and once mobilized can she expect to project her military
power to a spot on the earth where it will do some good?

Secondly, you must know many of the other things men-
tioned earlier, especially what I have called the fat, the
slack, and flexibility of the economy.

Thirdly, you must know with what skill and will Great
Frusina is able to plan, coordinate, and implement the
huge job of administering the mobilization.

Fourthly, you must know something of the government's
probable performance with respect to the civilian econ-
omy. Will it do a good job and will the citizens realize
it? Will they be able to see results commensurate with
their efforts and sacrifices, or will things appear to be as
bad as the gloomy ones have predicted?

When the speculative element of strategic intelligence
knows these things— as a result of drawing heavily for basic
data from the descriptive and reportorial elements— it is
in a fair way to be able to know the dimensions of Great
Frusina's strategic stature.

Specific Vulnerability

In speculations about Great Frusina’s future it is not
enough merely to analyze and add up her strategic assets.
There are subtractions to be made before we can hope
for any realistic appraisal of her future weight in the world
and the courses of action she may choose to initiate or take
up in response to outside stimuli. The negative quantities
in question are what I am calling her specific vulnerabili-
ties.

By these words I do not mean the general indefensibility
of her frontiers or the destructibility of her cities, or any
other such thing that may be common to a great many
states and may constitute a broad strategic weakness against
which a strong opponent may direct his general attack if
war became inevitable. Assuming that Great Frusina is
one of the world's strongest powers and that frontal attack

56

INTELLIGENCE IS KNOWLEDGE
with any of the non-military or military instruments of
grand strategy is too costly to contemplate, does she pos-
sess soft spots the exploitation of which will yield results
disproportionate to the outlay of effort? If she has such
soft spots she has what I am calling specific vulnerabilities.
The problem is: What must you know to know the loca-
tion and nature of Great Frusina’s specific vulnerabilities?

The answer to this question is that you must have the
kinds of encyclopedic knowledge described in the last two
chapters; 12 and from that select, by analytical processes,
those facets of the life of Great Frusina which are vulner-
able to the weapons you possess. The weapons, as noted
earlier, are of many sorts: psychological, political, eco-
nomic, and military.

During World War II we identified and misidentified
a large number of specific vulnerabilities of our enemies.
Unquestionably our correct identifications hastened the
victory. Among the readiest examples of successful selec-
tions in the field of strategic air bombardment were the
attacks on German synthetic oil production and aircraft

“To the overanxious and not too responsible intelligence devotee a
loud warning should be sounded at this point. In the quest for specific
vulnerabilities no intelligence operation can conceivably afford to canvass
the whole field of Great Frusinan culture. The discovery that all dental
chairs are made in a single factory which is vulnerable to sabotage or air
attack, or that ration cards are easily counterfeited, or that theTe is a
pacifist cult tucked away in the mountains, cannot possibly warrant the
time necessary to uncover such facts. On the assumption that these
matters arc vulnerabilities and specific enough to suit anyone, their suc-
cessful exploitation by an outside power will mean no more than a trifling
inconvenience to the Great Frusinan government. People will use rocking
chairs at the dentist's; new ration books may or may not be issued; the
pacifist cult will be liquidated at the cost of one government casualty.
The quest for specific vulnerabilities must take place in areas which will
be dictated by common sense and a knowledge of the limits of one’s own
instruments of exploitation. It should be further limited by the doctrine
of comparative costs: if you can deliver a 1,000-ton cargo by air, will you
make more converts with this cargo in the form of leaflets or high explo-
sives. If the latter, you should probably slow down on your research into
the weakness of civilian morale and the appropriate content of your
leaflets. But, conversely, the size of the rubble pile is not necessarily the
index of effectiveness.

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STRATEGIC INTELLIGENCE

and on the Japanese cities and the Hokkaido-Honshu coal
ferries. On the other hand, attacks on certain phases of
German transportation and the Japanese fleet in Kure can-
not be said to have been attacks on specifically vulnerable
targets. The knowledge which dictated these latter opera-
tions could have been improved.

Peacetime affords as many examples as wartime of spe-
cific vulnerabilities, and of their exploitation by the non-
military instrumentalities of grand strategy. For instance,
the Soviet Union’s ambivalent position with respect to the
western frontiers of Poland is a case in point. To the
Poles, the U.S.S.R. was saying, “We assure you the Oder-
Neisse line,” and to the Germans in the Soviet-occupied
zone whose support the Soviets were earnestly seeking, the
U.S.S.R. was saying, "As agreed at Yalta, the Oder-Neisse
line is not a closed issue." Mr. Byrnes in his Stuttgart
speech of September 1946 used the political instrument to
exploit this vulnerability to the hilt. When he asked the
Russians if they had decided how this frontier would be
fixed he forced them to close a decision they wished to
keep open. It will be recalled that the Russians had to
forsake the comfortable double position and reassure the
Poles, thus losing support in Germany. This was precisely
Mr. Byrnes’s plan.

Other comparable examples are in the papers almost
daily.

Probable Courses of Action: Estimates

I have urged that if you have knowledge of Great Fru-
sina’s strategic stature, knowledge of her specific vulnera-
bilities, aivd how she may view these, and knowledge of
the stature and vulnerabilities of other states party to the
situation, you are in a fair way to be able to predict her
probable courses of action.

To strengthen the reliability of your prediction you
should possess two additional packages of knowledge.

58

INTELLIGENCE IS KNOWLEDGE

First, you should know about the courses of action which
Great Frusina has followed in the past. Does the history
of her foreign policy reveal a pattern which she will adhere
to? Has she followed certain lines of international be-
havior for so long that they have hardened into traditions
with proven survival value. Or are they myths founded in
irrationality? Will these traditions or myths exert an in-
fluence-even though an illogical influence— upon her prob-
able present course of action? Has Great Frusina an old
friend with whom she will never break; has she had over
the years a real need for an "eastern ally"; has she a tra-
ditional "life-line of empire" to maintain, or the urge
for "ice-free ports"? Knowledge of this order is important,
but must be used with caution. 'For while the force of
tradition is strong, the present moment may be the very
one in which Great Frusina is girding herself to break with
the past.

Second: you should know, as closely as such things may
be known, how Great Frusinans are estimating their own
stature in the situation. Great Frusina is not herself im-
mune to errors in judgment, and as we have seen in the
cases of both Germany and Japan in World War II, is
capable of misconstruing the situation, overestimating her
own chances of success, and underestimating the strength
of her opponents.

One may say in summary that if intelligence is armed
with the various kinds of knowledge which I have dis-
cussed in this chapter, and if it commands the welter of
fact which lies behind them, intelligence ought to be able
to make shrewd guesses— estimates, they are generally called
—as to what Great Frusina, or any other country is likely to
do in any circumstance whatsoever. Note that intelligence
does not claim infallibility for its prophecies. Intelligence
merely holds that the answer which it gives is its most
deeply and objectively based and carefully considered esti-
mate.

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STRATEGIC INTELLIGENCE

In such fashion intelligence should have a reasoned
opinion on what policies a country is likely to initiate
within the next year of its own free will. If one should
want to know, intelligence should be able to estimate the
chances of nationalization of a particular British industry
in the next six months and the effect such a move would
have on Britain’s balance of payments. Likewise intelli-
gence should be able to estimate another country’s reaction
to outside stimuli. How will a country react to such
stimuli as a U.S. policy, a policy of some state other than
the U.S., an act of God, or natural calamity. What for in-
stance, would be the probable reactions of the U.S.S.R. to
an arrangement whereby the U.S. secured rights to the
naval and air facilities of Mers el Kebir, Bizerta, Malta,
Cyprus, and Alexandria? What would they be to a violent
swing to the left of the British Labor Party or the emer-
gence of Communist Party control in France?

Before leaving this subject the question should be asked:
in terms of the myriad qualifications introduced all along
the line, how valuable is the "knowledge” which emerges
from this element of strategic intelligence? Are the so-
called "estimates” of intelligence of any value? My answer
is Yes, they are of very great value if they are soundly based
in reliable descriptive data, reliable reporting, and proceed
from careful analysis. The value may not be an absolute
and ultimate one; the speculative evaluation or estimate
may not be exactly accurate, but if individual lives and the
national security are at stake I would prefer the indexes of
strategic stature, specific vulnerability, and probable courses
of action as they emerge from this phase of strategic intelli-
gence to the indexes afforded by the only alternative, i.e.
the crystal ball. In actual fact, many a speculative estimate
undertaken along these lines by the experts has been aston-
ishingly close to what actually came to pass. The social sci-
ences have by no means yet attained the precision of the
natural sciences; they may never do so. But in spite of the

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INTELLIGENCE IS KNOWLEDGE

profound methodological problems which they face they
have advanced prodigiously in the last fifty years. Taken
as a block of wisdom on humanity their accomplishments
are large not merely in the area of description but more
importantly in the area of prognosis. If the record did not
read thus, this book most emphatically would not have
contained a chapter on this element of the long-range in-
telligence job.

A Note on Capabilities

Although this discussion has faced up to the possibility
of war and the mobilization of armed power, and although
I have drawn many illustrations from wartime, it has so
far been cased in a context— and hope— of peace. It has
been written as if we were directing our peacetime policy
toward maintenance of peace and national security, but
at the same time we were remembering that we might be
thrust into a war which we must win. The question may
be put: What happens to the speculative-evaluative ele-
ment of strategic intelligence when the context is war?
How are our speculations changed by the introduction of a
state of war? The answer is, our speculations change in
emphasis and direction, but not in any fundamental sense.

For example, the components of strategic stature are
somewhat altered. To begin with, the situation may well
be much clearer when it is upon us than when it was out
in the future . 13 We are likely to be able to give a larger
degree of certainty to the time factor: When may we expect
the major effort? We are likely to be able to discern much

“ However, the coming of war by no means gives us an absolute cer-
tainty about the situation. The unexpected or unanticipated happenings
of the last war demonstrate this. I doubt if any strategic prophet on 1
September 1939 foresaw the date of Italy's entrance into the war, the date
of Germany’s attack on the U.5.S.R., the date of the Japanese attack upon
Pearl Harbor, the date of Italy's surrender. On 1 September 1939 we
knew more about the situation than a year earlier, but we by no means
had a perfectly dear picture of how the situation was destined to change
in some of its major proportions.

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STRATEGIC INTELLIGENCE

more clearly the geographical-spatial elements of the situa-
tion and foresee exactly the place or places of major and
diversionary attack. The line-up of allies and enemies will
in the main be much clearer though we may never be able
to call the turn exactly.

Next, although the enemy is still using his non-military
elements of grand strategy, they have been converted into
quasi-military instruments. Political pressures and induce-
ments are used with the gloves off and become political and
psychological warfare. The economic big stick and sugar
stick become the implements of economic warfare.

The armed establishment in being is now the already-
mobilized fraction plus what was mobilized during the
emergency period. The big question with respect to mili-
tary power is now referred to as the country’s capabilities . 14
When the military use the word "capabilities” they mean
a state’s ability to achieve a given objective expressed in
time and force requirements. They apply the word to both
themselves and the enemy. In a situation where the ene-
my’s objective is precisely defined— viz., his objective to
contain an amphibious operation (Normandy), or capture
a vital strategic objective (Stalingrad), or destroy by aerial
bombardment his enemy’s ability to stay in the war (the
first blitz of London or the V-weapon attack), or destroy
his merchant marine (the Atlantic campaign), a broader
and more explanatory definition is permissible. In this
latter context we might say that "capabilities” means the
amount of armed force (ground, naval, and air power) that
the enemy can mount on a battle line or battle lines and
maintain there at maximum operational activity, without
undue damage to over all strategic commitments, without

“This 1b a time-honored military word and I have kept it sacrosanct
to use in just this place. The temptation to use it in a peacetime context
aa an alternative for strategic stature was strong. To have done so might
have been a temporary favor to military readers, but the final result would
have been to spoil one of the few words in the intelligence vocabulary that
is still fairly pristine.

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INTELLIGENCE IS KNOWLEDGE
overstraining or ruining the home war economy, and with-
out shattering the staying power of the polity and society.

The issue of mobilization is technically at least a dying
or dead one for the problem of the peacetime war po-
tential has been transmitted to the problem of mainte-
nance of the armed force at the level of maximum opera-
tional activity. Nearly all the factors of war potential are
still very much in the calculation which intelligence must
make, but since the war is on, not in the offing, the word
"potential” might well be dropped or qualified.

Specific vulnerabilities are, if anything, of intensified
importance and their identification one of the major tasks
of intelligence. They are being exploited with all effective
and available weapons, and defended with all the skill,
ruse, and strength the enemy can muster for the task.

Our side will be calculating the courses of action open
to the enemy in terms of our estimate of his capabilities.
Military doctrine shys away from trying to be so specific as
to put the finger on the one course of action the enemy is
most likely to take; it shys away from the identification of
what is often called the enemy’s "intentions" or "probable
intentions.” In an estimate of the alternative courses of
action of which the enemy is capable the military formula
known as the "estimate of the situation” is used. Roughly
speaking, this formula runs as follows: (1) knowledge of
the environment, i.e. the terrain, weather and climate, hy-
drography, logistics, etc., (2) knowledge of the enemy's
strength and the disposition of his forces, (3) knowledge of
one’s own forces, (4) probable courses of action open to the
enemy. 15 The courses of action will lie primarily in the
field of military operations, but secondarily and scarcely
less importantly in the fields of political and economic
relations.

To make an estimate of enemy capability in wartime you

“In a later chapter I will discuss the "estimate of the situation"
formula at greater length.

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STRATEGIC INTELLIGENCE

must have possession of the main categories of knowledge
needed to gauge what I called the strategic stature, and
specific vulnerabilities of peacetime. To get at probable
courses of action you have to know much the same sort
of thing you needed for estimating probable courses of
action in peacetime.

In totting up these similarities we must not forget one
very large dissimilarity. In peacetime it is not too difficult
a task to come by the sort of basic knowledge you must
have to make these speculations (the U.S.S.R. excepted).
Before World War II you could have known a great deal
about any country of the globe and now after the war you
can again by no greater outlay of effort (the U.S.S.R. ex-
cepted). But during a war, when the enemy knows full
well the importance of keeping you in ignorance, the get-
ting of the basic knowledge is quite another matter. It can
be had, and much of it through perfectly overt channels,
but the effort necessary to get it has been multiplied many
times.

Throughout this chapter the theme has been the theme
of speculative knowledge. In discussing this element in
the content of strategic intelligence I may have given the
impression that speculative knowledge is a common com-
modity which is to be had for the gathering. If I have
given this impression, I wish to correct it. Speculative
knowledge is not common and it is not to be had for the
gathering. It is the rarest ingredient in the output of intel-
ligence and is produced only by the most competent stu-
dents this country possesses. It requires of its producers
that they be masters of the subject matter, impartial in
the presence of new evidence, ingenious in the develop-
ment of research techniques, imaginative in their hypoth-
eses, sharp in the analysis of their own predilections or
prejudices, and skillful in the presentation of their con-
clusions. It requires of its producers the best in profes-

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INTELLIGENCE IS KNOWLEDGE
sional training, the highest intellectual integrity, and a
very large amount of worldly wisdom. In this case, what I
am speaking of is not the important but gross substance
which can be called recorded fact; it is that subtle form of
knowledge which comes from a set of well-stocked and
well-ordered brain cells.

65

PART II

INTELLIGENCE IS ORGANIZATION

CHAPTER 5

INTELLIGENCE IS ORGANIZATION

I ntelligence is an institution; it is a physical organiza-
tion of living people which pursues the special kind of
knowledge at issue. Such an organization must be pre-
pared to put foreign countries under surveillance and must
be prepared to expound their pasts, presents, and probable
futures. It must be sure that what it produces in the way of
information on these countries is useful to the people who
make the decisions: that is, that it is relevant to their
problems, that it is complete, accurate, and timely. It fol-
lows that such an organization must have a staff of skilled
experts who at the same time know (or can be told) what
the current foreign policy and strategic problems are, and
who will devote their professional skill to producing useful
information on these problems.

In discussing organization in this chapter, I do not wish
to get into its detailed administrative aspects. There are,
however, certain problems of intelligence organization
which I will discuss at some length in a later chapter
(Chapter 8). In this section I want to confine myself to
some general comments on organization and the kinds of
people it must include.

Some of the staff must be particularly expert as on-the-
spot observers and as such will make up the bulk of the
overseas surveillance force. They are the men stationed in
foreign capitals whose job consists of observing and re-
porting. They are the people who supply in large measure
what I have called the current-reportorial element in stra-
tegic intelligence. What are the qualities of the ideal
overt 1 foreign observer, information officer, or attache?

1 It goes without saying that the first quality of a clandestine observer
is an inpenetrable cover or disguise, which at the same time does not
unduly restrict his observational activities. He should have other things

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STRATEGIC INTELLIGENCE

To begin with, there are some superficial qualities which
are none the less important. He must not dislike foreigners
or living with foreigners; he must be adaptable to the con-
ditions of life abroad; he must be something of an extro-
vert who is good with people. Too often men possessed of
these obvious surface qualities and none of the deeper
ones are chosen for foreign duty. This is poor policy, for
such a man may not be much sharper as an observer than
any casual American tourist or expatriate. What he must
have beyond all things is a high capacity to detect the sig-
nificant and a high sensitivity to changes which occur in
the matters he is watching. He has acquired this sensitiv-
ity by becoming a specialist in his subject. These qualities
which he has acquired by study and experience make up
the screen of sensitivity he exposes to the foreign scene.

But everything that such a screen picks up will not be of
concern to the home intelligence organization. Only cer-
tain things will be. To select these certain things he must
possess a second screen which was made in the U.S.A.
That is, he must be as thoroughly sensitized to the infor-
mation requirements of his country’s foreign policy and
strategy as he is to the foreign scene he is observing. He
must know what is wanted, what is important and unim-
portant.

Lastly, he must be no mere passive receiver of impres-
sions. He must continually be asking himself embarrassing
questions. He must be imaginative in his search for new
sources of confirming or contradicting information, he
must be critical of his new evidence, he must be patient
and careful in ordering the facts which are unchallenge-
able, he must be objective and impartial in his selection of
hypotheses— in short, although his job is not primarily a
research job, he must have the qualities and command the
techniques of the trained researcher.

beside cover, many of which are the same as those to be described for the
overt observer.

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INTELLIGENCE IS ORGANIZATION

Organizationwise, all this means that the intelligence
service must recruit trained and gifted people, must keep
them in the home office until they are thoroughly familiar
with the things that this government will want to knov/,
and must see to it that, once in the field, they are kept
fully posted on changes in the government’s informational
requirements. The overt foreign surveillance staff is thus
an overseas extension of the surveillance and research staff
which remains at home. At least it ought to be. Its inti-
mate connection with the home staff should be emphasized
and formalized by rotation of assignment.

In addition to the people who are on surveillance duty
abroad, the intelligence organization of course has a home
establishment. The staff of this home establishment is
busy on a home-based surveillance job and the research
job. In the circumstance that home surveillance is an
overt occupation there is a large overlap between the
qualities of the surveillance and research men. In fact, the
jobs of the two so completely merge that more often than
not one man does both jobs all the time. At his surveil-
lance task he leafs through the day’s take of radio broad-
casts, foreign press dispatches, the key newspapers from the
foreign country of his specialty, cables and reports from
relevant field observers and attaches. While at his research
job, which he may be conducting at the same time, the
data he acquires each day as he watches the daily parade of
events, are likely to be important pieces of his study. If he
does not keep abreast of what is happening today, his re-
search will lose sharpness and direction— not to say com-
pleteness.

The qualities necessary for an overt surveillance man on
field duty apply with equal vigor among this home surveil-
lance and research group. These people, too, must be
aware of the reigning problems of foreign policy, they
must be students highly trained in the matters which make
up the problems of that policy, they must have the capacity

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for painstaking research and impartial objective analysis.
Some of the work they do will be in the field of the natural
sciences; most of it in the area of the so-called social sci-
ences (in which I include the military art). The questions
which they must answer are obscure and can be reached
only by knowledge of out-of-the-way languages and the
techniques of higher criticism developed by the scholar;
often they are subtle, and subtle in a way understood only
by a man who has lived with them and understands their
subtleties almost by intuition.

Consider for purposes of illustration two small problems
related to our landing in North Africa. Long before that
operation was set, the United States through an agreement
with the Vichy French government was sending to French
Morocco, Algeria, and Tunisia occasional shiploads of con-
sumer goods, including petroleum products, cotton piece-
goods, sugar, and tea. All along, and especially in the
summer of 1942, the potential propaganda value of these
goods was well understood: if they could be properly pack-
aged and if they could carry some sort of message bespeak
ing our cause so much the better. What should this
message be? What languages should it be written in? How
should it be phrased? The problem was in essence one
well known to our advertising men, but then again it was
not. They could devise a label which had a fair chance of
success when applied to Americans, but the audience in
question was not American, it was predominantly French
and Arab. How do you reach the soul and conscience of
the colonial Frenchman and of the North African Arab?
You have to know as much of their psychologies, ruling
ideologies, habits of thought, and manner of expressing
themselves as you know of your own people.

Of the many hazards to success consider the actual
phrasing of the message in Arabic. The language is an old
one and at present is rapidly adapting itself to the new world
its users confront. Many things have happened since the

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INTELLIGENCE IS ORGANIZATION

Koran became a written text; the new concepts of democ-
racy, totalitarianism, liberalism, and so on must be given a
nomenclature before they can be expressed. Today's Arab
journalists and politicos and professors are doing just that
and our experts who know only the language of the Arab
classics could not possibly translate the message in ques-
tion. The American to do the job is the one who not only
knows modern journalistic and spoken Arabic, but that
particular subspecies of the green language which is writ-
ten and spoken in the local centers of Northwest African
Arab culture: Fez and Marrakech, Oran, Constantine and
Kairouan. Unless an intelligence organization could pro-
duce such a man, either from its own resident staff or from
its roster of consultants, it would fail in its obligations.

Another case in point was the problem of estimating the
available local labor force an army could count on in
Spanish Morocco. If the problem were given to someone
expert in manpower computations but innocent of the spe-
cial situation in Spanish Morocco, the answer would be
grossly misleading. The expert would begin his mistaken
way by taking Spanish Moroccan census figures at face
value, he would compound his error by assuming that the
people noted in the census could be physically reached, by
assuming that incentives could be devised to get them to
work, and by assuming that once employed they would be
able to do the sort of work required of them. Without a
Spanish Moroccan expert at the manpower man’s elbow to
tell him that the census was inflated, that the people were
scattered in tiny communities throughout the rugged and
virtually communicationless country; that the last thing
such people wanted to do was work; and that if they could
be induced to work the supervision problem would be
enormous— in short, without a man to add the local cor-
rectives— the result would indeed be misleading. Such a
man can develop the necessary competence only through

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STRATEGIC INTELLIGENCE

the method suggested. An intelligence organization must
have a large number of such real experts.

These examples are not cited to suggest that we would
have been defeated on the beaches of North Africa if we
had not known how to write the Arabic language of French
Morocco, or if we had overestimated the local labor supply
of Spanish Morocco. Different examples could prove that
without a large amount of comparable special knowledge,
the costs of our landing would have been appreciably
higher.

My point is that not just anyone can hold a professional
job in an intelligence organization. My point is that an
intelligence organization is a strange and wonderful collec-
tion of devoted specialists mblded into a vigorous produc-
ing unit.

In a sense, intelligence organizations must be not a little
like a large university faculty. They must have the people
to whom research and rigorous thought are the breath of
life, and they must accordingly have tolerance for the
queer bird and the eccentric with a unique talent . 2 They
must guarantee a sort of academic freedom of inquiry and
must fight off those who derogate such freedom by point-
ing to its occasional crackpot finding. They must be built
around a deference to the enormous difficulties which the
search for truth often involves.

Intelligence organizations must have appropriate facili-

2 There has seldom been a time like the present (September 1950) when
the message of this paragraph could have a larger importance. As the justi-
fiable fear of communists in government gradually and inexorably becomes
a fear of all non-conformists, the men with the imagination, originality of
mind, and unconventional channels of thinking must find it harder and
harder to fit through the finer and finer mesh of the so-called security tests.
These tests, rather than true tests of a man’s loyalty and discretion, have
become more and more tests for people whom irresponsible Americans— in
and out of government — consider unexceptional. The outcome is likely to
be the certification of people whose chief qualification for the job is that
they are not liable to attack by the Chicago Tribune or publicity-seeking
members of Congress. When an intelligence staff has been screened through
a mesh of this fineness, its members will be as alike as tiles of a bathroom
floor— and about as capable of meaningful and original thought.

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INTELLIGENCE IS ORGANIZATION

ties, prime among which are a library and a quiet place to
work. The library must contain both published reference
works and the welter of classified documents which are the
news of today and the raw materials of tomorrow's
analysis. The library must be well run, by which I mean,
run after the fashion of the ideal of American libraries. It
will, of course, not be a general library, but it will be an
extensive one in the area of current happenings abroad. As
to the quiet place to work, I mean something a great deal
more conducive to concentrated intellectual work than the
forty odd square feet of floor space per person which pre-
vailed during the war.

But that intelligence organizations bear a resemblance
to a university faculty is not enough. They must be geared
to a quicker pace and must be more observant of deadlines
even though this may occasionally and regrettably involve
a sacrifice in accuracy. Intelligence organizations must
also have many of the qualities of those of our greatest
metropolitan newspapers. After all, many of their duties
have a close resemblance to those of an outstanding daily.
They watch, report, summarize, and analyze. They have
their foreign correspondents and home staff. Like the
newspaper they have their privately developed hot sources;
their speedy and sure communications. They have their
responsibilities for completeness and accuracy— with com-
mensurately greater penalties for omission and error.
They have their deadlines. They have the same huge
problem of handling the news in millions of words per
day and seeing that the right staff man gets all messages
which fall appropriately into his field. They even have the
problem of editorial control and the difficulties of repro-
duction and dissemination. In these terms it is fitting
that intelligence organizations put more study upon news-
paper organization and borrow those phases of it which
they require.

Along with the newspaper and university aspects, intel-

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ligence organizations must have certain characteristics of
good business organization. It is by no means through an
inadvertence that the language of intelligence organizations
is weighted with words from business. Intelligence can be
thought of— indeed it often is— as an organization engaged
in the manufacture of a product (knowledge) out of raw
materials (all manner of data) and labor (highly skilled,
but not practical in the business sense of the word). The
product, to be worthy of the label, must be up to stand-
ard. It must be packaged in a multitude of ways to suit
the diversities of consumer demand. Some consumers
want it in semi-finished form (field notes with comments
upon them), some want it finished but in bulk (the encyclo-
pedia), the most pernickity want it in small amounts done
up in gift wrapping (the one-page summary of the world
situation in words of two syllables or less). Not only in its
packaging, but in its very inner make-up must the product
both direct and reflect the fluctuations of consumer taste,
or better, consumer requirements. Let Hungary threaten
to go Communist and the Hungarian ingredient must be
stepped up; let Panama ready itself to take a stand against
us in the matter of bases and the Panamanian constituent
will have to be increased. By using its backlog of experi-
ence it can anticipate— even create— consumer demand for
a new product, but only by maintaining the quality can it
expect continuous acceptance. Like many a producer of
consumers' goods, intelligence will have its greatest market-
ing success when its product bears the unmistakable signs
of superior research, cautious development, sound design,
and careful production.

Intelligence organizations are in competition with each
other. They must study the market and develop its unex-
ploited interstices. They must maintain small forces of
decorous and highly intelligent salesmen who not only
push the product and appraise consumer reaction to it
but also discover new consumer problems with an eye to
the development of new products. They must plan for the
future. nn

INTELLIGENCE IS ORGANIZATION

Their organization must reflect these characteristics of
business, and although both newspapermen and professors
are said to be equally allergic to organization charts, the
organizations must be set up by chart and operated with a
decent respect for the chart. But at the same time they
must strive for fluidity of structure; they must strive for
the ability to shift power from an under-utilized unit to an
overburdened one as unforeseen peak loads develop. They
must not permit any unit to get a vested interest in some
operation of forgotten importance. They must be willing
to undertake heartbreaking reorganization when the bal-
ance sheet so indicates. They must be willing and able to
undertake irksome and seemingly profitless tasks for the
good will of their best customers, and above all they must
not oversell themselves.

What I have said of intelligence organization is as true
for peacetime as for wartime. Just because poor intelli-
gence developing out of poor organization in a war has its
highly dramatic penalties, there is no logic in assuming
that similar penalties do not pertain to peace. Errors in
the grand strategy of peace may not produce the spectacle
of a needlessly disastrous battlefield, they sometimes pro-
duce something worse.

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CHAPTER 6

CENTRAL INTELLIGENCE

A s can be seen from the foregoing, the intelligence of
- grand strategy and national security is not produced
spontaneously as a result of the normal processes of govern-
ment; it is produced through complicated machinery and
intense purposeful effort. In this and the following two
chapters I will discuss certain aspects of the intelligence
machine. I lead off with that of our own Central Intelli-
gence.

On 22 January 1946 President Truman addressed a
memorandum to the Secretaries of State, War, and Navy
in which he directed “that all federal foreign intelligence
activities be planned, developed and coordinated so as to
assure the most effective accomplishment of the intelli-
gence mission related to the national security.” The
memorandum continued, “I hereby designate you, together
with another person to be named by me as my personal
representative, 1 as the National Intelligence Authority to
accomplish this purpose.”

The memorandum went on: “2. Within the limits of
available appropriations, you shall each from time to time
assign persons and facilities from your respective Depart-
ments, which persons shall collectively form a Central In-
telligence Group and shall, under the direction of a
Director of Central Intelligence assist the National Intelli-
gence Authority. The Director of Central Intelligence
shall be designated by me, shall be responsible to the Na-
tional Intelligence Authority, and shall sit as a non-voting
member thereof.”

With these words the President created for the first time
in our history a formal and official central organization for

1 Fleet Admiral Leahy was later named to this office.

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INTELLIGENCE IS ORGANIZATION
strategic intelligence. 2 It will be noted that the Central
Intelligence Group was not the usual sort of federal com-
mission or board. It came into being in response to an
executive act of the President as opposed to an act of Con-
gress; and it depended upon three established departments
of the government for personnel and funds.

Whereas this arrangement was commendable in that it
permitted the speedy establishment of a central intelli-
gence organization, it did possess obvious disadvantages.
Prime among them was the disadvantage of uncertainty.
Who could foretell when the "limits of available appropri-
ations" of the contributing departments might be nar-
rowed down to the point where the departments would be
unable to "assign persons and facilities" in adequate sup-
ply? Who could tell when a Congress— otherwise favorably
disposed to the central intelligence idea— might not destroy
it by too great reduction of the budgets of the sustaining
departments? In these circumstances what first-rate ci-
vilians would seek employment, what first-rate officers seek
assignment there?

Lieutenant General Hoyt S. Vandenberg (now General),
the second director of central intelligence focused his at-
tention on the problem. Largely through his efforts, which
extended throughout his directorship, central intelligence
became legitimatized in an act of Congress. Title I, Sec-
tion 102 of the National Security Act of 1947 8 establishes
a Central Intelligence Agency and makes the matter of its

1 During World War II the Joint Intelligence Committee of the Joint
Chiefs of Staff carried out the strategic intelligence mission of wartime.
Its several subcommittees and working committees did include representa-
tives not merely from the Army, Navy, and Air Force, but from several of
the civilian agencies as well— notably the State Department, the Office of
Strategic Services, and the Foreign Economic Administration. To this
extent the JIC was a kind of central intelligence organization but its
sphere of activities was limited by the nature of its wartime mission. Its
parent group, the JC5 itself, never had an Executive Order proclaiming
its formal existence.

1 Eightieth Congress, First Session, Public Law 253.

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STRATEGIC INTELLIGENCE

budget one of the annual concerns of Congress. Let us
examine the statute.

Perhaps first to be said is that it purported to close
out, for the time being at least, a long argument as to the
essential form that central intelligence should take. In the
last days of the war this argument was at peak and centered
around the basic question as to whether central intelli-
gence should be a very large operating organization or
whether it should be a kind of holding and management
organization. The most extreme advocates of the opera-
ting-organization idea asserted that an agency which had
an almost exclusive responsibility for the intelligence of
grand strategy and national security would be the only
kind to do a proper job. Whereas they did not propose to
put departmental intelligence completely out of business,
they did urge a central organization, which would conduct
on its own, the functions described in current doctrine as
collection, evaluation, and dissemination (or as I have
defined them— surveillance, research, and dissemination).
As such it could not help but envelop (or duplicate) a sub-
stantial part of the departmental intelligence functions. It
would have a staff of appropriate size: very large. It would
not be a part of a policy-making or operating department
or agency of the government. It would be a vast and living
encyclopedia of reference set apart from all such depart-
ments and agencies, and devoted to their service. Some of
its proponents would have had it report to the Joint Chiefs
of Staff, some to the President.

Around the advocacy of such an organization whirled
the usual arguments for and against highly centralized
administration. In my opinion these were peripheral to
the real issues. In one highly significant matter the pro-
ponents of the large operating company had a strong case.
It was: if thrust into the collecting phase of intelligence—
especially the overt collecting phase— the new organization
might do a better job than was currently being done.

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INTELLIGENCE IS ORGANIZATION

The bulk of overt collection was then and is now carried
out by overseas representatives of those departments of the
government concerned with our foreign relations. The three
service departments, as well as the Departments of Com-
merce, Agriculture, Treasury, Justice, and others send at-
taches; and the State Department, which stands in the fore-
front of all of them, sends its Foreign Service Officers and
attaches. For reasons deeply rooted in tradition and admin-
istrative practice, the quality of this overseas surveillance
and collecting force has been below standard. Some of its
members have had too many other duties to allow for a
good surveillance and reporting job; some have had the
time and inclination but not the substantive competence;
some have had the time and neither the inclination nor
the competence. But let us not forget those who have been
downright brilliant.

Now it is arguable that a new institution charged with
this surveillance and reporting function would be in a
strong position to break with departmental precedent and
put a keen expert force in the field. The chance of better
foreign reporting constitutes perhaps the strongest argu-
ment for highly centralized intelligence.

At the same time such centralization violates what to me
is the single most important principle of successful intelli-
gence, i.e. closeness of intelligence producers to intelli-
gence users or consumers. Even within a single department
it is hard enough to develop the kinds of confidence be-
tween producers and consumers that alone make possible
the completeness, timeliness, and applicability of the prod-
uct. There are great barriers to this confidence even when
intelligence is in the same uniform or building or line of
work. But how much more difficult to establish that
confidence across the no man's land that presently lies be-
tween departments. It would be too easy for such an
agency to become sealed off from real intimacy with the
State, Army, Navy, and Air Force departments; to live in

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STRATEGIC INTELLIGENCE

relative innocence of their particular fears and of the small
but significant changes in their objectives, policies, and
plans. It would not be impossible for such an organization
to misdirect its efforts, watch the wrong developments, and
report on matters of small concern. Moreover, its remote-
ness from day-to-day departmental business would have a
seriously adverse effect upon the applicability of its re-
search product. And it may not be too much to say that
directives to the departments from the President himself
could not alter this situation. The departments which
inevitably carry the chief responsibilities for the grand
strategy would continue their own intelligence work and
would remain aloof; they might not be entirely whole-
hearted in passing on to the agency the take of their own
intelligence operations. They might be a lot less than
wholehearted in passing on information which they were
entitled to consider “operational information.’* 4 In mat-
ters of interdepartmental concern, such as those handled
by the old State- War-Navy Coordinating Committee, each
department could be counted upon to rely upon the
knowledge produced by its own people. There would be

4 Administrative practice likes to try to make a distinction between
what it rails informational (or intelligence) communications and opera-
tional communications. In many cases the distinction is valid. For in-
stance, a cable concerned with the payroll, leave, and travel of the
Embassy stall, say, in Lima has operational but no intelligence importance.
However, other rabies which are primarily devoted to operations may
have an important underlay of intelligence. Suppose, for instance, a com-
munication comes in which asks for supplementary funds for travel. Such
a request would normally require explanation and in the explanation
might well be contained information of an important nature. Common
carriers in Peru may have suddenly become inadequate or unsafe or
unreliable— a fact which puts the mission at a gTeat disadvantage. It must
have special arrangements for its staff. If the recently developed trouble
in public transport had not already been the subject of an informational
report, the “operational” communication in question might be the only
word sent home on the subject. And if this particular communication
were held closely on the grounds that its content was primarily of opera-
tional concern, the receiving organization could be said to be withholding
intelligence from the field.

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INTELLIGENCE IS ORGANIZATION
little disposition to revere the opinions and facts produced
by the agency just because it was central.

The National Security Act, as it applies to the Central
Intelligence Agency, tries to meet this danger in a number
of ways. One of them is to reject the idea of the large
self-contained operating organization and to establish an
agency primarily for the coordination of departmental
intelligence. As such it partakes of the nature of the "hold-
ing” or "management” type of organization noted a Few
pages back. Let us examine the text of the act. Its para-
graph d describes, the function of the new agency. It reads:

"For purposes of coordinating the intelligence activities
of the several Government departments and agencies in
the interest of national security it shall be the duty of the
Agency, under the direction of the National Security
Council — 5

"1. to advise the National Security Council in matters
concerning such intelligence activities of the Government
departments and agencies as relate to national security;

"2. to make recommendations to the National Security
Council for the coordination of such intelligence activities
of the departments and agencies of the Government as re-
late to the national security;

"3. to correlate and evaluate intelligence relating to
the national security, and provide for the appropriate dis-
semination of such intelligence within the Government
using where appropriate existing agencies and facilities:

* Sec Section 101 of the National Security Act. The Chairman of the
Council shall be the President, or his designate from among its members.
These shall be the President, the Secretary oE State, the Secretary of De-
fense (see Section 202 of the Act) the Secretary of the Army (See Section
205), the Secretary of the Navy, The Secretary of the Air Force (see Section
207), the Chairman of the National Security Resources Board (sec Section
103). With advice and consent of the Senate the President may from time
to time designate other Cabinet members, the Chairman of the Munitions
Board (see Section 213), and the Chairman of the Research and Develop-
ment Board (see Section 214). Thus the new National Security Council
replaces the former National Intelligence Authority as the interdepart-
mental organization to which the CIA is responsible.

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STRATEGIC INTELLIGENCE

Provided, that the Agency shall have no police, subpoena,
law-enforcement powers, or internal security functions; Pro-
vided further , that the departments and other agencies of
the Government shall continue to collect, evaluate, corre-
late, and disseminate departmental intelligence: And pro-
vided further, that the Director of Central Intelligence
shall be responsible for protecting the intelligence sources
and methods from unauthorized disclosures;

"4. to perform, for the benefit of existing intelligence
agencies, such additional services of common concern as
the National Security Council determines can be more effi-
ciently accomplished centrally;

“5. to perform such other functions and duties related
to intelligence affecting the national security the National
Security Council may from time to time direct.”

Let me pause briefly at this point. Certain matters are
quite clear in this paragraph. To begin with the clearest
ones first: The Agency will not have any police functions.
The American public, which has rightfully feared any tie-
up between intelligence and the police power and which
upon occasions has been misled by irresponsible newspa-
pers, can bury the specter of an emergent American Ges-
tapo or MVD. Equally clear is the fact that CIA does not
supersede departmental intelligence; CIA’s task is to add
to its effectiveness by coordinating it and supplementing
it. That CIA cannot usurp functions more properly per-
formed in the departments seems to be adequately guaran-
teed by its subservience to the National Security Council
upon which sit the secretaries of the departments in ques-
tion. Lastly it is very clear that CIA will have certain
operating functions (subheadings 4 and 5) and that these
are to be construed as either directly in aid of depart-
mental intelligence or as an indistinguishable part of its
general mission of coordination.

A little less clear is the matter of advising the NSC on
departmental intelligence and of making recommendations

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INTELLIGENCE IS ORGANIZATION
for its coordination. Obviously CIA can advise and recom-
mend only when it knows practically everything there is
to know about departmental intelligence. This implies
that CIA should have an unrestricted right of inspection,
but no such right is vouchsafed by the Act. To be sure the
next paragraph, (e), does consider inspection, but the in-
spection in question seems to be an inspection of in-
telligence (knowledge, the product of the intelligence
activity) and not the departmental activity which
produced it. It might be argued— and I imagine it
has been argued— that the right to inspect the product
conveys the ability to judge the operation which puts it
out. But there is a considerable difference between this
right of judgment and a right to'inspection qua inspec-
tion. I should guess that anyone responsible for the awe-
some task of coordinating the intelligence of national
security would sleep better if his inspectorial rights were
stated a bit more carefully and fully.

Basic to all discussion so far is the meaning of the words
"national security." As I have argued earlier, all of the
aims of foreign policy or the grand strategy become inextri-
cably intertwined. Is United States policy with respect to
the UN a policy which emerges from our desire to promote
a better world order or one which emerges from our
insistence upon national security? Does our atomic energy
policy emerge from the one or the other? Is our policy on
the International Trade Organization undertaken in be-
half of our material prosperity, a better world order, or our
national security? I personally would not be bold enough
to hazard a categorical answer to any of these questions,
nor do I feel craven in not doing so. I find it hard to
imagine the CIA being any bolder and I assume therefore
that the intelligence functions of the Agency will in actual
fact be considerably broader than a narrow construction
of the Act’s "national security” would have it. In fact I
can only surmise that under the rubric of "national se-

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STRATEGIC INTELLIGENCE

curity intelligence” CIA will find itself in all reaches of the
intelligence of high policy and the grand strategy. This,
the Act does not spell out. Maybe it is not necessary.

The next paragraph (e) is dedicated to making sure that
CIA has the ability to "correlate and evaluate intelligence
relating to the national security. . . ." B It reads: "To the
extent recommended by the National Security Council
and approved by the President, such intelligence of the
departments and agencies of the Government, except as
hereinafter provided, relating to the national security shall
be open to the inspection of the Director of Central Intel-
ligence, and such intelligence as relates to the national
security and is possessed by such departments and other
agencies of the Government, except as hereinafter pro-
vided, shall be made available to the Director of Central
Intelligence for correlation, evaluation, and dissemination:
Provided, however, that upon written request of the Direc-
tor of Central Intelligence, the Director of the Federal
Bureau of Investigation shall make available to the Di-
rector of Central Intelligence such information for correla-
tion, evaluation, and dissemination as may be essential to
the national security."

The meaning of the paragraph is quite clear: if central
intelligence is mandated to correlate, evaluate, and dis-
seminate a certain kind of knowledge, and if it is not to
produce this knowledge from scratch, then it must have
access to the files of the organizations which do produce it
from scratch. CIA must have the right to inspect (i.e. right
to see the files) because it is unreasonable to require that
CIA ask for knowledge by the title of the document it may
appear in. Without the right of inspection CIA would be
in a hopeless spot; it would have to ask the departments
for knowledge the existence of which it did not certainly
know. And in the event of a negative reply from the de-
partment it could never be certain that the department was

a See Article 3 of paragraph (d).

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unaware of possessing the information, had not mislaid it,
or was willfully withholding it.

In addition to the right of inspection CIA must also
have the right to use the information which the departments
produce from scratch. Hence the phrase: such intelligence
. . . “shall be made available to“ CIA.

The special position which the FBI enjoys among the
other departmental intelligence organizations is note-
worthy. If I read the lines correctly, CIA has no right of
inspection in the FBI. When it wants information which
it feels may be possessed by the FBI, CIA must ask for
it in writing. In the best of circumstances this procedure
constitutes a barrier between the two organizations, and
in circumstances other than the best it can become an
impenetrable wall.

To be sure the FBI’s main function is peripheral to
CIA's, and the bulk of information which the FBI pro-
duces from scratch will not be of interest to CIA. For
instance, CIA is not likely to be concerned with any of
the FBI's domestic intelligence in aid of its law enforce-
ment duties. On the other hand, there are areas in which
the FBI works which can be of immense importance to
CIA. From the wording of the Act, whether or not CIA is
informed of the FBI’s knowledge in these areas would
seem to rest too heavily upon such intangibles as good
inter-agency relations and personal friendships.

Preceding paragraphs of the Act place the CIA in an
appropriate interdepartmental milieu, provide for the po-
sition of its director, and make special provision with re-
spect to its personnel.

Paragraphs (a) and (b) establish CIA under the National
Security Council and deal at some length with the prob-
lem of the director. According to the text he may be
either a commissioned officer of the armed services or an
individual from civilian life. His salary is to be $14,000
whatever his previous status. This means that if he is of

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one of the services, he will draw his service pay and enough
additional to bring him up to the full $14,000 amount.
Furthermore as an officer he is removed from the chain of
command: “he shall be subject to no supervision, control,
restriction, or prohibition (military or otherwise) other
than would be operative with respect to him if he were a
civilian. . . . He shall not possess or exercise any super-
vision, control, powers, or functions (other than such as
he possesses ... as Director) with respect to the armed
services or any component thereof. . . .” Having com-
pleted his tour as Director of CIA, his service may not
put him under any disability for having been absent from
service duty.

In making these provisions with respect to the director.
Congress tried to overcome certain objections to entrust-
ing the job to an officer of the armed services. These ob-
jections may be stated as follows: (1) The incumbency of
a service officer is likely to be short. Furthermore it may
be terminated at the very moment when a change in the
top control will be most harmful to the organization. The
reasons for this situation lie in the services’ own demand
for their best officers and in any officer’s reluctance to sep-
arate himself too long from his service lest he damage his
professional military career thereby. In stipulating the
high salary (higher than any save that of five-star rank)
plus the guarantees of no-disability for absence from a
straight service assignment. Congress was holding out an
inducement for long continuous tenure and protection for
the officer who made use of it. (2) An officer on loan to
CIA from one of the services, and not separated from the
chain of his command might not be free to act in com-
plete impartiality toward the other services represented in
CIA— might have duties within his own service which
would prejudice his wholehearted devotion to CIA. By
specifically lifting him out of the chain of command Con-
gress has tried to meet these objections.

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INTELLIGENCE IS ORGANIZATION

But still Congress has not dealt with all objections—
the ones which remain I will consider in the latter half of
this chapter.

Paragraph (c) of the act gives the director the power to
"terminate the employment" ... of anyone in the Agency,
"whenever he shall deem such termination necessary or
advisable in the interests of the United States.” The Di-
rector’s power in this respect overrides guarantees of tenure
written into civil service legislation. At the same time the
present act goes on to say that persons thus terminated are
to be under no disability in seeking and accepting employ-
ment elsewhere in the government.

This paragraph is dictated by the personnel problem
which confronts all federal departments and agencies—
intelligence and otherwise— charged with the national se-
curity. That employees in such organizations, and within
the government at large, must be loyal and discrete goes
without saying. But in the so-called security agencies (no-
tably State, Army, Navy, Air Force, Atomic Energy Com-
mission, FBI, and CIA) this is not enough. Certain of their
employees and all of those of CIA must be in a special
bracket of dependability. It can be argued that if a man
has irregular habits or abnormal quirks of character he
may be subject to pressures akin to blackmail; that if a
man has near relatives living under the control of a for-
eign state he may be subject to similar pressures. Persons
of these categories are not of as good dependability— or,
as the phrase goes, are not as good security risks— as others,
and a security agency might be well advised not to em-
ploy them. Once they are employed, the agency should
be allowed to terminate their employment without preju-
dicing their employment rights and expectations elsewhere
in the government . 7 What is true for the security agencies

T It goes without saying that a person with a primary and demonstrable
attachment to a foreign power, or to an ideology inconsistent with that of
the U.5., has even less reason for employment in a security agency or, for

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in general is true of their intelligence compartments, and
even more so for CIA. For unless CIA is known or be-
lieved to be the safest place in the government it will not
have the full confidence of the agencies to which it is sup-
posed to be central. And if it does not have this confidence
it has no function. Therefore paragraph (c) of thq Act is
of vital importance to the very existence of central intel-
ligence.

The framers of the foregoing paragraphs of the National
Security Act have recognized three matters basic to the
achievement of an intelligence of national security. They
have recognized the fundamental importance of depart-
mental intelligence and have not impaired it in the inter-
est of central intelligence. They have recognized that
departmental intelligence must be worked over ("coordi-
nated” is their word)— by some higher power to make sure
that it adds up to the requirements of national security.
And finally they have realized that certain essentially op-
erating tasks in aid of the total intelligence effort might
better be undertaken centrally. That the framers did not
spell out at length how departmental intelligence should
be coordinated and how supplemented is certainly to be
understood and applauded. The question is however, does
the Act give CIA and its Director sufficient latitude to do
a good job of coordinating and supplementing. To an-
swer this question it is necessary to say what the good job
in question involves. In the rest of this chapter I shall try
to answer the question with respect to my notions of what
the job calls for— first with respect to the coordination or
management function.

The job of coordinating departmental intelligence ac-
tivities is an important one. It is far more important than

that matter, anywhere in the government. But for the very reason that the
problem of loyalty is so much broader than that of security in an intel-
ligence organization a full discussion of it would not seem appropriate in
a book of this kind.

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the coordinating of the knowledge which these activities
produce. For unless the coordinating agency can exercise
some influence over what should and should not be pro-
duced, it is hard to see how coordinating that which is
nominally produced will always be a remunerative opera-
tion. I feel therefore that CIA’s primary task lies in some
sort of oversight over departmental activities. Let me be
clear about the departments and agencies in question.

In the first instance the departments in question are the
four which have a primary responsibility for the national
security, viz., State, Army, Navy, and Air Force. In peace-
time, the Department of State claims, and generally enjoys,
primacy in the field of foreign policy— which as I have
indicated earlier, includes the maintenance of the national
security as one of its objectives. Thus, at the present writ-
ing, intelligence activities of the Department of State are
or should be of a high degree of importance under the CIA
canopy.

In the second instance the departments and agencies at
issue are those like Treasury, Commerce, Agriculture, Jus-
tice, the Tariff Commission, and so on, whose primary
responsibilities lie in the domestic sphere, but whose share
in foreign affairs is by no means negligible. As domestic
and foreign policy becomes harder and harder to separate,
even a department with the name Department of the In-
terior finds itself in foreign matters. Actually, Interior’s
Bureau of Mines does a good bit of observation and re-
search on the mineral resources of foreign countries. The
point is that after the big four there is a lesser group of
twenty-plus organizations which contribute much to the to-
tality of federal knowledge and which, therefore, fall under
CIA's coordinative power. The coordinating task I have
in mind requires that CIA follow six lines of administra-
tive activity.

One, it must establish clear jurisdictions for the various
departmental intelligence organizations. That is v it must

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define what subjects each will pursue and what subjects
each will not pursue. For example, it might tell the De-
partment of Agriculture to do a better job in foreign agri-
cultural intelligence and tell the State Department to get
out of that field. It might tell the Division of Intelligence
in the Army Department to get out of certain aspects of
economic intelligence and tell the Department of Com-
merce to take on this responsibility.

Two, having set up departmental jurisdictions, it would
police them. The policing would have to be a continuous
process and would have to be carried out with the greatest
tolerance and wisdom. It would consist of three subactivi-
ties. First, it would deal with the inevitable expansion
of one jurisdiction over into another. In this guise CIA
would pursue needless duplications of function. I should
like to stress the word "needless,” and assert that all ap-
parent duplications are by no means duplication in fact.
People who shout duplication at the first sign of similarity
in two functions and who try to freeze one of them out
on the ground of extravagance often cost the government
dearly in the long run. Second, CIA would see that every
department was exploiting the entire area of its jurisdic-
tion. By this I mean that a department would not be per-
mitted to pick and choose the subjects within its jurisdic-
tion and skimp on those it found distasteful or relatively
useless for purely departmental purposes. No department
could welch on its allotted responsibility and thus permit
a gap to develop in the total picture. Third , it would have
to enlarge certain of the established jurisdictions by the
addition of new subject matter as it appeared and became
significant to the national security. For example, responsi-
bility for knowledge of space ships may one day have to
be assigned to some department’s jurisdiction.

Three, to return to my main lines of coordinative activ-
ity, CIA should run a continuing survey of departmental
intelligence to see that its produce is up to standards of

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quality, and that the contribution which each depart-
mental outfit makes to an interdepartmental project has
the interdepartmental orientation. This is perhaps as im-
portant as the quality of the work itself, for without what
I have called the interdepartmental orientation individual
contributions will not add up. Nor can they be made to
add up. The project manager in central intelligence will
6nd himself forced to do a substantial part of the original
work all over again and from scratch. As I will point out
later this must be avoided at all costs.

Four, if a departmental intelligence organization should
be in default, central intelligence must be ready to diag-
nose and help correct the trouble. For instance, on the
theory that the intelligence requirements of top policy will
be something larger than the sum of the requirements of
departmental policy, and on the theory that the sum of
normal departmental contributions to a given top-policy
project falls short of the requirements, some department
may well be judged in default of its obligation. It might
be that this top project demands such a thing as a table of
world tugboat tonnages and that the Navy Department
had never before felt obligated to keep a tally of tugs. The
Office of Naval Intelligence could not deliver. If such
information were mandatory for the project, central intel-
ligence should be ready to see that ONI got the funds and
personnel to go into tugboat intelligence.

Five, central intelligence must manage directly or indi-
rectly all interdepartmental projects. By such projects I
mean studies which will require both surveillance and re-
search along a very broad front and which will be destined
for White House, Cabinet, National Security Council, and
the Joint Chiefs of Staff. Projects of this sort will com-
mand the resources and skills of all federal intelligence
and should be carried out under CIA responsibility. I
have in mind such large orders as the Vatican in world
affairs, the probable world growth curve of international

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Communism, and the effect upon world power alignments
of the new movements in the so-called dependent areas.
It may be that central intelligence will have one of its
own staff act as project supervisor, or it may be that the
project supervisor is temporarily borrowed from a depart-
mental intelligence outfit. In either case, the supervisor
should be responsible in the first instance to the Director
of CIA or his delegate.

Six, CIA should take cognizance of the personnel pol-
icies of departmental intelligence. It should be fully aware
of the difficulties which civil service and the departments
themselves occasion intelligence work. It should take an
active part in seeing that the proper people are recruited
and trained for departmental intelligence.

In performing these six types of coordinating activity,
CIA should be guided by one high overriding principle—
it should stay out of primary substantive work . CIA will
have to staff up on a few men of highest professional com-
petence in appropriate fields of study. It will have to have
some outstanding economists and political scientists, some
international relations specialists, some specialists in the
military art. It will have to have a somewhat larger num-
ber of junior men who have begun to make their profes-
sional way. But as little as possible should this staff get
into the creative substantive work. It should confine its ac-
tivities to management of interdepartmental projects, criti-
cisms of the departmental contributions to such projects,
investigation of why such departmental contributions are
inadequate or in default. Its job is what might be called
policing the professional competence of the departmental
outfits and continuously pushing departmental frailties
back into departmental laps.

As soon as CIA departs from this principle, as soon as it
gets into substantive work and itself makes descriptive or
evaluative studies, it is in trouble. For when it does this,
it becomes little more than a fifth major research and sur-

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veillance outfit. It enters into direct competition with its
subsidiaries and at great disadvantage. It competes with
them for professional personnel in a market which is al-
ready tight to the strangulation point. It competes with
them in building up a library of basic documentation (see
page 133 and following), and its lateness in entering this
field puts it under enormous handicap. It has few con-
sumers which are not also served by departmental intelli-
gence outfits or by ad hoc combinations of them and thus
it competes for consumers and consumer guidance. This
guidance will be grudgingly given to an organization
which is administratively separated from the consumer
and which has no operating responsibility.

Competition of this sort will annoy and anger. Depart-
mental intelligence will swear out the vendetta and through
a few sordid and well-known bureaucratic dodges may ne-
gate CIA’s whole program. Not that bad blood will not
be created in the six lines of management I have proposed.
I see plenty of it. But I do not see it enduring forever. For
the role I have assigned CIA is a non-competitive role and
one which the departments should come to honor once
they have recovered from the original shock.

Some may argue that CIA cannot police substantive
competence in the departments unless it has a staff which
can beat departmental intelligence at its own game. By
this they imply that CIA cannot keep up departmental
standards until it is so strong a research organization that
it is virtually the match of the combined strength of all
the departmental outfits. With this point of view I cannot
agree at all. I do not believe that a critic, to be construc-
tive, must know everything that the person he criticizes
knows. I do believe that a wise and experienced critic can
poke holes in an argument or put his finger on soft spots
in another’s work without being the technical equal or
master of that other. The kind of critic I have in mind
is the elder statesman of his profession, the man who has

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been through the mill of detailed duty or original work
and who, therefore, has a high ability to discern the good
and bad in another’s work. He is a man who keeps up
with his profession, in fact leads it, not by doing the chores
of early and mid career, but by doing the ripe and reflec-
tive work of full career. I should expect that they— a dozen
or so aided by perhaps a score of sharp assistants— would be
civilians. Not only will civilians suitable for the job be
more abundant, but as well, the right ones can move with
high fluidity from service to service. Perhaps higher fluid-
ity than an officer of one of the services. If more than a
dozen of such were needed there is no reason to withhold
them, so long as they clearly understood that their duty
was criticism and direction, not surveillance and research.

The problem of recruiting a dozen such men is perhaps
the key problem of the whole program I have laid down.
Without them the program will not move. I believe, how-
ever, that they can be recruited but only under the follow-
ing conditions:

1. The program which they are to inaugurate must have
been fully thought through. More, CIA must have taken
soundings in the National Security Council and made sure
of its support. No men of the caliber I have in mind will
take on a job of this sort until they have some clear notions
on the chances of success.

2. If they are to be civilians then the leadership of CIA
must be civilian. The National Security Act has obviated
some of the disadvantages of military leadership, but it has
not obviated the main one. This is that so long as an offi-
cer of the armed services is director of CIA it is almost
inescapable that his immediate staff also will be of the
military. It is likewise almost inescapable that he will set
up his organization according to the familiar military staff
pattern and will pad out the top echelon— it has happened
often— with Army, Navy, Air Force, and Marine officers.
Appointment to the top staff in this way is likely to de-

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pend upon criteria such as appropriate rank, availability,
and branch of service. Some of the officers will be there
because they are colonels or captains not otherwise assigned
and others will be there merely to maintain a service-by-
service balance in the table of organization. Some of this
group will have little professional competence in the spe-
cialized task of high-level intelligence and others may have
little interest to boot. In short, the people to whom the
civilian experts report and with whom they must work
will be chosen on criteria far different from those to which
the civilians themselves owed their own appointments.
They will not regard this situation as enhancing the job,
and no matter how good and great a man the Director,
they will be recruited with difficulty.

Of course there is an alternative, namely, to have a mili-
tary Director and to man the top coordinating echelon
from the ablest men of the services themselves. I am not
of those who assert the services do not possess officers of
adequate professional training for the job. I know they
do. I also know, however, that the services will be slow to
assign such officers to intelligence and that the officers
themselves will not be gay about the assignment. A long
duty in intelligence is not the best way to advance in the
military career. 8 Realize that the privileges and immuni-
ties with which Congress has invested the Director (should
he be an officer) do not apply to other military men as-
signed to CIA. But suppose the services assign and the
officers gladly accept the assignment and go to work. I
submit that such a coordinating staff will have more trou-
ble dealing with the military departments than a civilian
group— and almost certainly more difficulty with the ci-
vilian departments. For instance, if someone is to inves-
tigate shortcomings of the Army’s intelligence activities, he
should be an army officer, not a navy or air officer. But it
may happen that the right man for the job wears the blue

1 In the next chapter, I deal with this problem at some length.

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uniform. And if someone is to give unpleasant advice to
State or Commerce, he had best not be a man in any color
uniform. To create an all-military coordinating staff is to
rob it of fluidity of action with respect to the services and
prejudice its success with the civilian departments.

Let us suppose that CIA is civilianized as to leadership
and does recruit its key professional coordinating person-
nel, what of the remaining problems? They are block-
busters. Take the question of defining the jurisdiction of
a given departmental intelligence organization— say, the
Army Department’s Division of Intelligence.

Everyone would agree that Army Department positive
intelligence should produce knowledge on the ground
forces of foreign states. This is just about as far as the
agreement will go. Ask the next question— "what is meant
by ground forces? the force in being or the mobilizable
force?"— and see what happens. The Army Department
would hold that knowledge of the ground forces in being
was only a fragment of what it had to know; it would argue
that the force in being is only an inaccurate and mislead-
ing symbol of the total ground force which might be mo-
bilized for war. It is against the potential force that our
army must be prepared, not against the fragment in being.
Now this mobilizable force is no simple thing, and to
calculate its size and striking power no mere matter of mili-
tary intelligence narrowly construed. As I tried to demon-
strate in Chapter 4, calculations on mobilizable force are
preponderantly based on knowledge of political, economic,
social, and moral phenomena. To estimate mobilizable
force or war potential. Army Department intelligence must
spread far and wide over other departmental jurisdictions.

Suppose now that CIA moves to restrict the Army De-
partment’s jurisdiction and to make other departments— in
this case State and Commerce especially— furnish it the po-
litical and economic knowledge to complete its calculation.
Two howls will go up. One will go up from the Army

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Department to indicate that it is not satisfied with the
stuff it is receiving. It will say that what State and Com-
merce are handing on is inadequate or that it cannot be
fitted into its kind of estimate. The other howl will go up
from State and Commerce to indicate that their intelli-
gence organizations are over-burdened with their own de-
partmental duties and that they do not want the Army
Department account.

Or, State and Commerce’s howl will indicate that they
would be glad to work for the Army Department if the lat-
ter were more specific in its demands. As matters stand, they
claim, the Army Department is being overly cautious about
the large project to which they are supposed to contribute.
So long as they do not know the end-use to which their
product will be put, they cannot turn out a satisfactory
job. Indeed they may go further and say that this is the
last time they will aid the Army Department if it does not
take them into its confidence and give them the sort of
guidance they require.

Such arguments back and forth will inevitably draw CIA
deeper and deeper into the supervision of departmental
intelligence operations. If CIA has the right men in its
own employ this will be a good thing for the country. But
it will not be so conceived by the parties of the second
part. They will take it with poor grace, and CIA must be
strong and competent to weather a five-year storm.

The trouble CIA makes for itself on these jurisdictional
problems will be aggravated when it cracks down, say, on
the State Department for an unsatisfactory contribution to
one of its (CIA’s) own interdepartmental projects. Its sub-
sequent investigation into State’s intelligence organization
will, for a while at least, provoke bad feeling. State, as
other departments, will have its difficulties accommodating
itself to what it will consider an impairment of its sov-
ereignty.

But CIA may improve its position with its subsidiaries

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when it fights the good fight for them. If the State De-
partment’s poor performance were occasioned by a lack of
staff, and the lack of staff by unreasonable budget-cutting,
CIA’s championship of more funds will win friends. This
and the fact that department intelligence craves good top
management may take some of the sting out of CIA’s
unpleasant activities. If it can bring departmental intelli-
gence together as a team on broad intelligence problems
which everyone regards as nationally important; if it can
furnish first-rate interdepartmental project supervisors and
good staff work, it can step on departmental toes and sur-
vive a good deal of departmental wrath. The fact that it
is not competing with the departments will be one of the
strongest points in its favor.

In the very best of circumstances the task I have outlined
for the CIA of my choice would be an extremely difficult
one. But the wording of the Act does not describe to me
the best of circumstances. To begin with, it does not
civilianize the agency by specifying that the Director must
come from civil life. In permitting an officer of the armed
services to hold the post the Act gives CIA a military aura.
This may turn out to be a positive disadvantage, for in
making possible an accumulation of military men at the
top level, it will discourage the recruitment of profession-
ally competent civilians at what I have called the coordi-
nating level. Let us not forget that the subject matter of
CIA’s particular brand of intelligence is much closer to
so-called civilian specialties than to military.

But as I have indicated, failure to have high-caliber
civilians in the coordinating staff is not necessarily a dis-
aster. The services have able people for the job if they
(the services) are willing to assign them and keep them
there for long periods of time. Let us assume that they do
just this. Under these conditions has CIA everything it
could ask in the way of statutory powers to do the job I
have described?

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I do not think it has. For the drafters of the Act have
been too much preoccupied in the wrong direction. They
have given CIA access to the product of departmental in-
telligence activities, but not to those activities themselves.
In truth they have given CIA the right to make recom-
mendations about the activities, but they have not vouch-
safed CIA the right directly to investigate them. Under
the Act, if CIA is to make such recommendations it will
have to base them not on a direct first-hand knowledge of
what these activities are, but upon a knowledge of them
inferred from a study of their end product. This process
seems unnecessarily devious to me— like leaving an auto’s
ignition switch off and propelling it by its battery and
starter.

Suppose the director of CIA senses something wrong in
departmental intelligence and suppose that, because of the
limitations of the Act, he cannot make weighty and pointed
recommendations to the NSC. Suppose the NSC is not
impressed by the recommendations he does make. The di-
rector of CIA is none the less under the terrifying respon-
sibilities of the Act. If he cannot get what he must have
from departmental intelligence and if he has not the power
to make departmental intelligence produce it, his way is
all too clear. He must start producing his own intelligence
from scratch. He must embark upon his own full-scale
surveillance and research activities. And, as I have re-
marked, in so doing he will move into competition with
the departments. Things being as they are he cannot
expect to triumph; departmental intelligence, no matter
how inadequate it becomes, has certain important and
persistent advantages. The best he can hope for is a stale-
mate.

So far I have confined myself only to the first of the two
chief functions of CIA, e.g. coordination. What of the
second, the operating function? The nature of this is set

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forth in sections 4 and 5 of paragraph (d) of the Act. It
consists of performing for the benefit of departmental in-
telligence those tasks which can best be performed cen-
trally plus any other tasks that the NSC assigns it. The
intent is clear and its chance of realization high. In its
operations CIA will be working in behalf of the depart-
ments. Should CIA desire to go off on its own it must
first obtain clearance from the NSC upon which sit the
secretaries of the departments in question. They may be
expected to show an appropriate amount of parochial in-
terest in the departmental operations. That they should
is just right.

In consonance with what I have said about CIA and
the coordinating function, I repeat here: CIA's operating
functions should not be in competition with the depart-
ments. Whatever the substantive product of these opera-
tions may be, it should be a product designed to fit a
departmental intelligence requirement. Or, it should be a
product to fit the requirement of some interdepartmental
project. It should not be something which CIA fancies
too important for departmental use, or too far removed
from all departmental jurisdictions. For as soon as CIA
operates and produces new substantive knowledge only for
its own account, and as soon as it passes this knowledge on
to some final consumer without making the departments
party to the procedure, CIA is in substantive work. All of
the woes which will beset it if its coordinating activities
lead it to original and creative research, will beset it in
this second case.

It seems to me that the worst thing CIA could do would
be to set up operations in aid of a home research staff and
to try to turn out supra-departmental knowledge without
the partnership of the departments. Should departmental
intelligence reach such a low estate that it was unworthy
of CIA’s confidence, then CIA's job would be to build up
departmental intelligence— not try to supersede it. For if

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INTELLIGENCE IS ORGANIZATION
the Central Intelligence Agency insists on trying to per-
form the entire intelligence job and in so trying endeavors
to reduce departmental organizations to impotence it will
not succeed. It will emerge from the battle perhaps still
an agency but not central, and it may not even warrant the
name intelligence.

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DEPARTMENTAL INTELLIGENCE

B y departmental intelligence I mean the organizations
within certain federal departments and agencies which
are devoted to the production of intelligence (knowledge)
of what goes on abroad. There are a great many such
organizations— perhaps twenty or more— but those of pri-
mary importance are, as I have already noted, within the
Department of State, Army, Navy, and Air Force. It is
these organizations— the State Department's Office of Intel-
ligence Research and Office of Collection and Dissemina-
tion, the Army Department's Division of Intelligence, the
Navy Department’s Division of Naval Intelligence, and
the Air Force’s Division of Intelligence— which should in
the nature of things produce, or possess the capacity to
produce, most of the basic knowledge for our high-level
foreign policy and grand strategy. The remainder is the
product of the Central Intelligence Agency (in its oper-
ating function, just noted) and of the other departments
peripheral to the problems of foreign relations.

The job of any one of the big four is easy to describe
theoretically— though as I indicated in the last chapter,
very difficult to describe in practical terms. In theory the
job should consist of describing, observing and reporting
upon, and speculating as to the future of those phenomena
in foreign lands which lie within the jurisdictional com-
petence of the department. Thus our Air Force’s intelli-
gence arm should devote itself to foreign military aviation
and our State Department’s intelligence to foreign politi-
cal and perhaps economic activities. The job which any
one of the big four does will tend to be a double one.
Ideally it will first produce all the knowledge required for
enlightened departmental policy, and second, enough more
of the same kind of knowledge to satisfy the requirements

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INTELLIGENCE IS ORGANIZATION
of national policy. This is to say that departmental intel-
ligence has obligations both to the department which
houses and supports it and to the councils of top national
policy which lie above. This latter obligation may force
an intelligence organization to produce knowledge within
the department’s sphere of interest of a breadth and a
degree of remoteness that would not be necessary for
straight departmental consumption. This is the kind of
extra knowledge which the Central Intelligence Agency
must have in order to carry out its program oE long-range
interdepartmental studies.

To perform the dual task departmental intelligence
must have an organization and people to fill it. Let me
speak of the people first. They should come first because
the proper people constitute the single essential element.
There is no substitute for them.

The people in any departmental intelligence organiza-
tion are of several main categories:

First, and in common with all organizations there must
be the administrative housekeepers— the people who see
that the mail comes in and goes out, that the staff has work-
ing quarters and supplies, that the staff gets paid; that the
multifarious regulations regarding leave, travel, efficiency
ratings, and the working day are observed; that the classi-
fication of positions is in line with regulations of the Civil
Service Commission, and that the budget gets prepared
and presented in order and in time . 1

1 1 will not discuss this group oE people Eurther because the problems
surrounding them are problems by no means peculiar to an intelligence
outfit. However, I am reluctant to leave the area of the administrative
force in government work without some comments which apply to my own
experience in intelligence, and I suspect, to many a civil servant in other
reaches of the government.

On principle I would always find myself on the side of the advocates of
administrative decentralization. I fully realize the penalties which a loose
administrative organization imposes, but my conviction is that Lhey are
far los than the penalties of the other extreme— a fortiori in govern-
ment, where the main administrative problems go back to the antiquities
and obscurities of the Civil Service Statute. The lesser unit, or to use the

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STRATEGIC INTELLIGENCE

Next there is the clerical group. This is composed of
the people who do the paper work for the administrators,
but more importantly it also encompasses the people who
put out and physically distribute the operation's end-
product: the studies and reports and memos. I might go
further and include all the various categories of repro-
ducers: the mimeographers, the photographers, the print-
ers of maps, the assemblers and binders of manuscript, and
although it will not flatter them to be included here— the
people who aim to present the language of letter and num-
ber in the language of picture.*

Next is the library group about which I will have more
to say in the next chapter. As in any institution where re-
search is going forward and where new knowledge is the
end-product, they constitute the keepers of the physical
accumulation of knowledge. They take in, as a result of
their own and other peoples' efforts, the data of yesterday;
they index and file it; they safeguard it; they dispense it

jargon, the lower echelon unit, of any government office which has no
administrative agent to represent its case (and represent it with fervor and
low animal cunning in the higher administrative office) is out of luck.
The Civil Service system under its present jungle of rules and regulations
must inevitably appear as not much more than a conspiracy against com-
petence. The only way a low echelon unit can stay in business is to main-
tain its own paid administrative champion to fight its way through to the
surface. Without a large amount of such decentralization and resultant
combat there is the calm which settles over buried cities: the front office
is beaten into line by the Commission and the survival of the unfit
throughout the organization becomes the order of the day.

■With respect to these latter— the visual presentation experts— I find
myself of several minds. There is no question that good diagrams and
charts improve the understandability of certain kinds of text. There is also
no question— to me at least— that certain other kinds of text cannot be
illustrated, let alone improved in understandability, by such diagrams.
The presenters themselves are not always of this latter view. Like mem-
bers of any new and aggressive calling they often seem to be unaware of
the limitations of their medium and highly reluctant to play the role of a
passive service organization. If left to follow their own inclinations, they
have been known not merely to essay the impossible in picture language,
but also to start urging the professionals whose work they should be illus-
trating to change the wording and even the meaning so as to make it more
amenable to their means of expression.

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INTELLIGENCE IS ORGANIZATION
to the people who are putting the data together in new
patterns and deriving from it new approximations to truth.

Next is the professional staff which, with my last group,
is the crucial part of the organization. Without the pro-
fessional experts there is no intelligence. These are the
people who are students of the manifold aspects of life
abroad I have described earlier. They are the social and
natural scientists and the military experts who have a
finger-tip feel for the ways of research and analysis, who
are masters (or dedicated novitiates) of the tools and tech-
niques of their particular bracket of learning, and to whom
the discovery of new facts or new relationships between
facts is a career. They are the people with wide screens of
professional sensitivity whose organs of reception register
and convey minute changes in the areas they have under
surveillance— changes which would not register at all on
a less specialized screen. They are the people who, stimu-
lated by a minute change, automatically go into action to
prove its importance or unimportance and its validity or
invalidity. Further— who go into action equipped with the
basic knowledge for research in their particular field.
They are also the people who undertake research at the
suggestion of a policy officer or a planner, the people who
find out about the food situation in China for Mr. Clay-
ton, or the broad outlines of the program which the Rus-
sian listener to the Voice of America wants to hear. They
are the ones who furnish the knowledge for testing the
feasibility of objectives and the knowledge from which
policy and plans may be formulated. In short, they are
the human element behind everything that is written in
this book, and if they do not in actual departmental prac-
tice measure up to the specifications of this paragraph or
do not perform the functions I have designated for them,
they should .

My last group is the group of substantive managers who
are in spirit and training at least a fraction of the

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professional staff set off for other duties. The job which
they have to do is that of seeing that the output of the
professional staff is specifically directed to the current prob-
lems oE the department and to those oE top policy; that
the component pieces of the output, i.e. the studies or
maps or reports or memos, will be produced according to
the priority of demand for them; that the finished projects
will be complete, balanced, and delivered on time; and
that they will be delivered in a physical form most appro-
priate for the user. (You do not send a 200-page study to
the White House when the request asked for a memoran-
dum, nor do you send a memo to the operating officer who
has requested an encyclopedia.)

To carry out this job the substantive managers must be
exceptional indeed. For they must combine a high degree
of professional ability with a high degree of practical so-
phistication and managerial talent. They must have pro-
fessional standing in order to command the respect of a
professional staff. That they have this respect and the good
will which usually goes with it is of utmost importance.
They will have great difficulty in obtaining either respect
or good will without themselves possessing a reputation
and a proven ability in an apposite field of systematic
study. This experience in turn will favor their perform-
ance in another and almost equally important way: it will
permit them a personal insight into the capabilities of the
staff and a foreglimpse of the time necessary for the com-
pletion of a given project.

The other quality which they must possess is no less
vital. It is the quality or qualities which permit them to
move easily and informally among the policy people and
planners of their own and other departments and to iden-
tify the intelligence requirements of the main problems
which are at issue; it is the quality which gives them good
judgment on the priority rating of the main problems, and
which permits them to see precisely where the weight and

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INTELLIGENCE IS ORGANIZATION
power of their organization can be most effectively utilized.
What I am describing is not what every professional gets
with his graduate training; in fact he is likely not to ac-
quire it anywhere. Generally he has to be born with it.
It is good sense, discretion, tact, ability to get on with peo-
ple, ability to lead and direct them, a knowledge of what
makes the world go around, and an acute understanding
of where the world is right now.

There can be no question of the importance of compe-
tent professional specialists and of this managerial control
staff. Yet departmental intelligence often behaves other-
wise. It often behaves as if the secret of success lay in
ingenious organization, as if a subtle and complicated
product could be turned out by inexpert people using fool-
proof jigs and tools. I hold that this is an egregiously mis-
taken notion; I hold that you cannot produce knowledge
of a high order of subtlety and utility in the same way
you produce Fords. If you follow the assembly-line prin-
ciple and multiply the individual steps and stages of an
intelligence enterprise to the point where each of them is
so reduced in complexity that a non-professional employee
can perform it, you will not get knowledge at the end of
the line. You will get virtually nothing of value. You will
continue to get next to nothing until the people who work
at the rudimentary tasks also know a great deal about the
whole process and are also able to work effectively at many
of the advanced stations on the line.

The simplest example of what I am talking about is the
habitual division of labor between a foreign language
translation service and the analysis of the translated texts.
There may be such a thing as foolproof translation, but I
have seldom seen it. Language, being the blunt tool that
it is, is capable of concealing the message it aims to convey
to everyone except the man who is attuned in advance to
its meaning. Just as some very wise men cannot read a
timetable in their own language, so other equally wise men

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who have spent a lifetime learning and teaching a foreign
language will find many things written in this language
which they cannot translate. They can translate only those
passages where both the foreign and American meanings
are experientially familiar to them. The man who can
render every shade of meaning of a foreign novel into our
language will not necessarily be the man who can translate
a technical article. Furthermore all the dictionaries in the
world are not going to see him through his difficulties if
he should try. He cannot translate the article until he has
mastered its tricky vocabulary, which in turn means that
he has, in some measure, mastered the subject matter. The
point is that the intelligence officer who must rely on some-
one else's translation of the materials he himself must
analyze is at the mercy of the translator, and in my experi-
ence few people who are satisfied with the dreary job of
routine translation are ones I would choose to lean upon.

But the division of labor in the translation service is
only one ready example among many. Separation of the
collecting from the evaluating phase, and the evaluating
phase from what is termed “research” on the organization
diagrams are other parts of the same picture and even more
open to question on the same basis.

The masters and doctors of public administration who
draw the organization diagrams have seemed too often
oblivious of this, as have high officials in departments
which must perform a crucial intelligence mission. Service
thought along these lines I find peculiarly hard to under-
stand. It takes off from the premise that the line officer
shall not become a specialist in any one kind of endeavor,
and that the top brackets of the career, whether in staff or
line, will be filled by officers with command experience.
Although the services do tacitly acknowledge the impor-
tance of specialization in such obvious matters as medicine
or communications or logistics they do not give these spe-
cialists parity with the line officer by guaranteeing them

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INTELLIGENCE IS ORGANIZATION
identical career opportunities. Paradoxically, where no in-
stitution is more aware of the value of staff work than the
services and few institutions put such emphasis upon it,
the officer with too much staff experience in his life or the
officer who would choose nothing but staff work is under
a disability cognate with that of the technical or profes-
sional specialist. The result of this line of thinking upon
the intelligence function is to be regretted.

The general officer or flag officer in charge of intelli-
gence at the general staff level of Army, Navy, and Air
Force is almost invariably a man with distinguished com-
mand experience- By the same token, he is almost never
a man whose whole life has been devoted to strategic
intelligence. The people in his organization upon whom
he places most reliance and who exercise greatest authority
—his deputies, his operating branch chiefs, his staff ad-
visers, and even sometimes some of his "experts," are al-
most certain to come from the same stratum of command
experience. Those with a future in the service cannot af-
ford to do too long a stretch in any specialized task— intel-
ligence included— and the best of them, who in a few years
of study and practice in a given intelligence area would
become experts in every sense of the word, are the very
ones who must move on. Behind them they may leave, in
more or less permanent residence, the men who have be-
come reconciled to not rising to the top. This is not to
imply that these are necessarily always the least wise, imag-
inative, and active men in the service, but it is certainly to
argue that they are not always the people of greatest wis-
dom and imagination, and the most active.

Giveil this situation— a situation in which personnel of
the very highest degree of technical competence are needed
but not forthcoming— it is perhaps reasonable that service
thinking tries to produce a remedy in the organization
diagram. On the principle that a crew of x men can bring
a 16 -inch gun turret to bear upon an invisible target and

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hit it by the deft but uncomprehending use of delicate and
complicated gadgets, this thinking argues a similiar case
for a similar division of labor in a problem, say, economic
analysis. Break down the task into its simplest components
and use as many men as you have components. With gun-
nery the solution works better than with economics.

The services have an extremely difficult problem on
their hands. There is no escaping the fact that their prime
obligation is to win the battles and the wars. One hundred
and fifty years ago the state of the art of war was such that
generally informed and intelligent men were adequately
equipped to use the then relatively simple machines of
war. At that time an overwhelming percentage of an
armed establishment could take its place in the line and a
very small percentage had to be withheld for setting up,
maintaining, and improving the machines. In these cir-
cumstances the services could afford to frown on specializa-
tion, and they did so. But not a decade has passed in
which the state of the art of war has not changed, and
changed in tune with the growth of science and technol-
ogy. Today an army, navy, or air force must still be able
to put a winning force in the field, and at the same time
employ the incredibly complicated new implements. So
complicated are these that a service might dissipate its
entire capability in learning their refinements and the
nuances of their most effective use. There is a not un-
natural apprehension in service opinion that unless one is
on his guard, the armed forces will be under the control of
the new gadgets instead of the other way around. Thus
there is another of those well-known cultural lags which in
this case is damaging to the services’ professional special-
ists. The services realize they must have them, but they
have not yet reached the point of putting a proper value
on their talents. And until these special talents get the
same opportunity for accomplishment, advancement, and

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acclaim which holds for line duty, the specialist’s function
will suffer.

Now strategic intelligence is one oE the phenomena of
war and peace which has advanced in complexity along
with all the other machines and techniques. It is no longer
something that a competent officer can do between two
command assignments. It is a specialty of the very highest
order and until the services recognize it as such and prop-
erly recruit, train, and reward personnel who make a
career of it, they are certain to do an inadequate job.

But the services are not the only departments which are
culpable. The State Department, for example, had no
intelligence service by that name until the fall of 1945.
(It had had some research units in recent years that did not
survive for long.) The intelligence mission, in so far as it
was carried out at all, was carried out by non specialists
who also had a thousand other things to do. Among the
conservative element of the department, which was also
the regnant element, there was little or no comprehension
of what intelligence was and no disposition to support an
intelligence staff. In fact when the Research and Analysis
Branch of the Office of Strategic Services was transferred
to the department by Executive Order (20 September
1945, to take effect 1 October 1945) it was vigorously op-
posed by the old guard. They did not want an intelligence
outfit as such, although they did assert an interest in some
of the personnel and the library. They urged the break-up
of the inherited organization and the apportioning of its
regional experts to the appropriate operating desks of the
so-called geographic offices. Although this meant grave
damage to the organization, Mr. Byrnes was prevailed
upon to take the step.

Throughout the debate which preceded Mr. Byrnes’s
action, high officers of the State Department based their
argument on one basic issue. According to their lights,
they already had an intelligence organization in that they

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themselves were all intelligence officers. They therefore
did not need— nor indeed did they want— an organization
which might reach conclusions different from their own.
To the extent that sensate beings usually know and think
before they act, these State Department officers— some of
whom were very able individuals— were correct in asserting
that they were intelligence officers, but to the extent that
they knew everything which they should and could have
known before they acted, they were not. Of two important
aspects of intelligence, they had time to do no more than
an indifferent job of surveillance and no time at all for
research. If an army had followed a similar line of argu-
ment and based its action upon it, it might have tried the
Normandy landing with knights in armor or the reduc-
tion of the Japanese homeland by Greek fire.

Since Mr. Byrnes’s decision, the situation in the State
Department has changed considerably. One of General
Marshall’s first acts upon becoming Secretary of State was
to reverse Mr. Byrnes and restore the department’s intelli-
gence organization to its original shape. If left thus and
given the wherewithal to rebuild its staff, it would cer-
tainly have become of increasing value. But no sooner had
the retransformation taken place than the organization
began to be starved out. Its budgets have been clipped in
the department and manhandled in Congress. The reduc-
tions have been sufficiently severe to have occasioned
almost mortal hurt.

There are other civilian agencies which have a second-
ary role in foreign policy and which have more or less
continuously given intelligence its due. Although they
have not always called it by that name, and although they
have not been able to maintain it at high level in every
budget year, they have nevertheless demonstrated a thor-
ough understanding of the problems. They have realized
the importance of the task; they have had a decent respect
for full and accurate knowledge; they have employed the

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INTELLIGENCE IS ORGANIZATION
right kind of professional people to produce it; and these
people have been given an enlightened leadership. It is in
some of the reaches of departments like Labor, Commerce,
and Agriculture that one finds the encouraging element in
departmental intelligence.

Let us assume that departmental intelligence overcomes
the handicaps it is working under; let us assume that it
recruits the right people and properly directs their efforts;
that each departmental intelligence unit digs in in the area
of that department’s jurisdiction. The question is, can we
expect that the sum of departmental intelligence will add
up to the requirements of the grand strategy and the na-
tional security? It seems to me that we can expect this only
if the coordinating and managerial job done by a central
intelligence agency is of the same degree of expertness as
that of the control personnel of departmental intelligence.
In other words, CIA (in its coordinating function) is to
the whole intelligence picture what the substantive man-
agers (call them the Control Staff) of any departmental
intelligence unit is to the departmental professional staff.
It must do the same sort of job, though on a larger scale;
it must have the same type of people, though better.

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CHAPTER 8

DEPARTMENTAL INTELLIGENCE
ORGANIZATION :

TEN LESSONS FROM EXPERIENCE

I T is virtually impossible to separate the substantive
elements of a big subject like intelligence from the
methods of setting up and operating an intelligence or-
ganization. In preceding pages although I have not dealt
with administrative problems except as they arise in other
contexts, I have touched upon many of them. In this
chapter I will try to concentrate all that will be said of
administration in its own context. The selection of the
problems and my interpretation of them derives from my
five years in war and post-war intelligence experience. As
will be seen, I will not attempt to draw the master organi-
zation chart, nor will I attempt to cover all fields of ad-
ministration. I will confine myself in the first instance to
organizational problems which are characteristic of the
intelligence business, and in the second to only ten of
those. The general reader will perhaps forgive this sortie
into shop talk; but if he prefers he may turn immediately
to Chapter 9 and resume his way.

Problem No. 1: Should the basic pattern of intelligence
organization be regional or functional?

The job of strategic intelligence deals with foreign
countries and with the complex of the life of foreign
people. Any people, and especially those of greatest con-
cern to our strategic intelligence, have many patterns of
behavior. They behave as military beings organized into
armed establishments, as political beings engaged in put-
ting their formal relations with each other into orderly
form; they behave as economic beings providing their

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INTELLIGENCE IS ORGANIZATION
creature wants, and as social, moral, and intellectual beings
giving play to their gregariousness, their consciences, and
their minds. Strategic intelligence, which puts peoples
under surveillance and investigation, deals with them in
both national and behavioral guises. It deals with them as
Frenchmen, Swedes, Russians, and Belgians, and it deals
with them also as military, political, or economic beings.
Furthermore it deals with combinations of them, acting,
say, in their military or economic guises; Swedes and
Russians as economic men in a trade agreement; Britons
and Frenchmen as political men looking out for their
joint security. The practical question is, how do you plot
your organization so as to deal best with both the national
and the functional phases of foreign existence?

The trouble begins with the customs of American edu-
cation. Certain groups of people who become critical ex-
perts in a line of study specialize in a geographical area, or
a region, or a single national state. Modem historians,
geographers, and some political scientists, for example,
tend to be regional in their specialization and aim to learn
all about, say, Greece, or the Iberian peninsula, or Latin
America. They learn the necessary languages of the pri-
mary literature, they learn the whereabouts and what-
abouts of that literature, they travel in the area whenever
they can, and they write books about it. In these books
they often move from disciplines of which they are Teal
masters over into others of which they are not. The ana-
lytical modem historian, for example, inevitably finds him-
self working in the area of the political philosopher, the
economist, and the sociologist.

Other groups of people devote their time to functional
study. Many economists and sociologists, for instance, are
striving for the discovery of economic or social laws which
will obtain for the Chinese as well as the Egyptian or
Dutchman. They specialize in the subject ,, economics ,, or
"sociology,” and oftentimes they do it without nailing

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their investigations down to any country or race of men.
At these times they work in pure theoretical terms with
no earthy frame of reference whatever. At other times,
when they must have an earthy frame of reference, they
pick the most convenient one: the U.S.A. These non-
regionalists learn only the languages that their theoretical
literature is written in; they may learn French or German
in order to get at the untranslated economic and sociologi-
cal treatises which they must keep up with. They seldom
bother to learn any other.

In these terms, suppose that a prospective loan to Iran
must hinge upon the chances of success of Iranian eco-
nomic recovery. Suppose a strategic intelligence outfit is
given the task of making an estimate of these chances.
What sort of organization will best handle the job: an
organization which has an Iran section in command of the
project or an organization which has an economic section
in command? The argument is virtually endless. The
regionalists say that unless you understand the nature of
the Iranian, his traditional behavior, the national myths
he defers to, and the character of Iranian politics and so-
ciety, no amount of theoretical economic analysis will
provide the answer. The functionalists, or economists in
this case, say that economic considerations override all of
these things; that the Iranian economic problem is not
substantially different from any other economic problem;
that their (the economists’) business is the analysis of this
universal economic behavior, and that if the regionalists
will loan them some staff to act as translators and legmen
they will get on with the job.

Out of this dilemma one thing is plain: you must have
people who know a very great deal about Iran in general
(and, I would insist, can read the Iranian language) and
people who know the field of economics. Which of the
two groups should have command of the project is by no
means so plain, nor is there a clear answer to the larger

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question as to whether the whole organization should be
laid down along regional or functional lines.

Unsophisticated administrative thought tends to com-
promise along unsophisticated lines. Faced with the basic
organizational problem, it divides the world into a series
of regional units, known as the European Division, Latin
American Division, etc., and divides the functional subject
matter into another set of units known as the Economic
Division, the Psychology Division, etc. The outcome of
such compromise is immediate and total administrative
chaos. It is an invitation, and one readily accepted, for
major civil war. In those matters which have, say, an
economic or psychological aspect and which also pertain
to a group of people (that is, in all matters except those of
unique concern to the functional theorist) regionalists and
functionalists will line up in defense of their special com-
petence, will bicker and snipe, and will often end by pro-
ducing two separate analyses which may contradict each
other.

To be sure, there are more subtle and elaborate compro-
mises possible than the simple and frustrating one outlined
above, but in my experience they were so complicated that
they tempted human nature to disregard them and cut
corners, and when they did work they worked because of
one superhuman genius in a key spot.

The compromise which I find myself supporting is one
which uses the regional breakdown as far as possible. That
is: step one is to break the world up into four or five major
geographical areas, step two is to break each of these into
smaller geographical components. Thus you might have
a Far Eastern Division, composed of four sections, one of
which deals with Southeast Asia. Within the Southeast
Asia Section you could have a Burma Unit and as many
other units as there were countries in Southeast Asia. This
would take care of the regional specialists. But the chances
are good that you could not regionalize the functionalists

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down to the level of a single country. Our system of edu-
cation does not produce economists whose chief compe-
tence lies in the field of the Burmese economy. Hence
there must be a compromise.

The economists, if possible, should constitute a group
at the level of the Southeast Asia Section. If competent
economists cannot be found for so stringent a regional spe-
cialty, they should be trained, and in the meantime
grouped at the level of the Far East Division. But in my
view, the more one defers to the shortcomings of American
training and the larger the geographic area one uses for
the grouping of the functional staff, the more administra-
tive grief one is piling up. Ideally, for many of the most
important phases of strategic intelligence, the regional and
functional expert should be one and the same man. The
ideal Burmese unit should be made up of people, each one
of whom could handle every complex and technical prob-
lem of Burma's existence, whether that problem were po-
litical, social, economic, legal, military, or what have you.

The compromise which I have advocated will appear to
the functionalists as virtually no compromise at all. They
will regard it as a distinct victory for the regionalists. But
I believe that an essentially regional pattern should pre-
vail for three reasons. They are:

One. The business which an intelligence organization
must perform is predominantly national or regional busi-
ness. Foreign policy and grand strategy seem in the first
instance to deal with other states and groups of other states.

Two. The bulk of the primary data coming in or al-
ready available in the file or library is from a national
source and deals with national or regional problems. Sta-
tistics, official reports and publications, observations, criti-
cal reviews, the press, monitored radio programs, and so
on in very large measure follow the pattern of the world’s
political boundaries and appear in the official language of
the state in question. The units of value and quantity in

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which things are measured are likewise apt to follow a local
national usage.

Three . The insights which are jointly reached into the
significance of trends in a region will often be more
valuable than what might be called eclectic insights ar-
rived at by merging the work of an economist who was
thinking “economics” and a political specialist who was
thinking “region.” To illustrate: if an economist who is
thinking the French coal problem works with a political
man who is thinking French politics the result is likely to
be a better result than otherwise.

For these reasons, intelligence organizations which have
essayed the non-regional or functional arrangement have
found it practically inoperable. One very important or-
ganization finding functionalism thrust upon it was im-
potent until it was able to jockey, say, all Latin American
work to its sociological division (which thereupon did little
but Latin American political, economic, social, and mili-
tary intelligence), all Far Eastern work to its political di-
vision, etc. The functional names on its various units were
merely cover for the regional organization beneath.

As our institutions of higher learning go in for their
so-called area programs, the aims of which are to produce
exactly the kind of expert I have placed in my ideal Burma
unit, the administrative problems of intelligence organi-
zations are bound to become easier. We may look to the
day when staff will be satisfied with the place it occupies
on the organization chart and when it stops its silly jabber
about the superiority of its special discipline. In the
meantime, awaiting the appearance of these paragons, the
formula for the best temporary solution is to set up a
straight regional organization, to mix regionalists and
functionalists (and mix them at the lowest possible ad-
ministrative level), to make them sit next and work next
each other, and finally to offer every prayer and induce-

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mcnt to them to respect and absorb the other man’s pro-
fessional competence.

This solution disposes, on paper at least, of a very large
part of the classic regional-functional row, but by no
means all of it. What remains is:

Problem No. 2: How to handle matters which defy
regionalization?

In any strategic intelligence operation (as in the conduct
of foreign relations themselves) there are problems which
are impossible to handle on a regional or national basis.
I refer to such things as the developments in international
law, the United Nations, and other straight international
organizations. There is a second range of problems which
is international in nature though not so purely interna-
tional as the above. These problems still have their dis-
tinctly national nuclei. They revolve around such insti-
tutions as the World Federation of Trade Unions (which
is an international organization superimposed upon many
national components) the Catholic Church, and the Com-
inform. There is still a third group of problems which are
international only in the sense that they are multi-na-
tional; such matters as world trade and finance, transpor-
tation, food, and a number of key strategic commodities,
such as rubber and oil.

An intelligence organization must handle all three sorts
of problems. It must be doing a surveillance job on what
is happening in these fields and it must be prepared to put
a research team to work on them. A straight regional or-
ganization will not be able to do either. There must there-
fore be some sort of functional co-organization which is
ancillary to the main regional show.

There is a simple principle which should govern the
establishment of this functional staff. The units which
deal with problems which have least connection with na-

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tional states (my first category) can be properly built to the
size necessary to handle the job by themselves, calling on
regional sections when needed. The units which deal with
problems not so purely international as the former (my
second category) should be kept at minimum strength
relying more heavily upon appropriate regional person-
nel. The units which deal with problems which are essen-
tially multi-national rather than international problems
(my third category) should consist of no more than one or
two high-grade specialists whose main job is to needle the
regional units and coordinate the regional effort. Further-
more these third-category units should be restricted rigor-
ously to the subjects in which the intelligence organization
has an important and primary responsibility.

From the above, the principle which I urge in the estab-
lishment of the functional part of the organization is a
principle of beware. Beware lest the functional units,
which had to be formed, grow to the point where they are
a menace to the smooth working of the regional staff.

If this principle is followed and the functional units are
kept in a secondary but highly specialized position, the
organization will find itself confronted with still another
category of job for which it provides no formal organiza-
tion. The handling of this last category is my next
problem.

Problem No. 3: How to handle those problems of a
multi-national nature for which the organization provides
no full-time functional supervisor or coordinator?

The kind of problem under discussion here is a very
common one in the intelligence business; it arises from
such phenomena as the Franco-British defense pact, the
rebellion in northern Greece, the emergence of the Viet
Nam Republic, or the racial issue in South Africa. In each
case the situation involves the competence of more than a

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single regional unit . 1 The Greek problem, for example, to
be properly dealt with, should be studied by the Greek,
the Yugoslav, the Albanian, the Bulgarian, the U.S.S.R.,
the British, and probably the Turkish experts. It will de-
mand a good amount of political, economic, social, and
military expertise on all these national fronts. It will
surely demand the knowledge of the man or men who are
functionally specializing in international communist
movements. How is such a project undertaken?

The answeT is that that it is undertaken on a 'purely ad
hoc basis. Let us assume that an important consumer has
asked for this study. Once formally accepted by the top
managerial or control staff, which weighs it against other
commitments and assigns it a priority, it is handed on to a
project supervisor. He should be the man with the largest
amount of substantive knowledge of the subject, who also
is the best manager and coordinator and editor. Let us
say he is chief of the Greek unit, or, if personnel problems
are acute, a utility special assistant to the division chief for
such assignments. He meets with people from other units,
blocks out and breaks down the total task, farms out the
pieces, outlines the length and formal structure, and sets
the deadline. When the pieces are done and the final
paper is being put together he bosses the work directly if
he does not actually do it himself. He is the champion of
the finished job; he sees to its clearance with the top mana-
gerial or control staff, its reproduction, and its dissemina-
tion to the important consumer and to other people who
he knows will find it most useful . 2 Next week he may be

1 I am assuming that no single unit will have exclusive responsibility
for both Britain and France, nor will any single unit have responsibility
for the several states directly and indirectly involved in the Greek situa-
tion, or for metropolitan France and its far eastern colonies, or for Britain
and all its dominions.

z 1 will deal with the large problem of dissemination at greater length
later on.

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exclusively on his own region or country again, or he may
be a minor member of another ad hoc team.

The task of the top control staff throughout this proce-
dure is one of greatest importance. To begin with, they
must pass on the relative importance of the project; they
must see that the organization’s totality of relevant compe-
tence is brought to bear upon the subject; they must stand
behind the project supervisor in ironing out differences of
opinion; they must critically examine the finished job for
the way it is presented (length, language, completeness,
etc.); and they must try to feel out and identify substantive
soft spots even though they themselves may not be special-
ists in matters Greek.

Of their services the working staff is sometimes likely to
be contemptuous and to hold that they do nothing but
throw their ineptness in the way of the struggling profes-
sional. But the fact is that all professionals are not them-
selves any too realistic about the kind of work they are
doing. They pay the well-known academic penalty for
their expertness: they are often cavalier about deadlines,
they are sometimes overly precious in matters of small
practical concern, they are sometimes capable of blurring
the crucial point or points at issue or burying them in
irrelevancies. It is the job of the managerial staff or
Control to introduce, where necessary, the corrective of
utility and applicability to the problem at hand. This
leads to:

Problem No. 4: How is effective control exercised with-
out jeopardizing the accomplishment of the mission?

First let me say that Control is the crux of successful
operation, and that successful control demands a kind of
hard-boiledness which a staff of substantive experts often
finds not merely distasteful but almost unsupportable.
Control is thus quite justifiably placed in this list of prime
administrative problems.

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As has been noted elsewhere. Control must concern itself
with the following chores:

1. From knowledge of what is going on in the world of
policy, plans, and operations, it must see that the intelli-
gence program is in line. This involves:

a. Seeing that appropriate foreign activity is kept
under special observation and that interesting leads
are systematically followed up.

b. Seeing that research is undertaken on problems
which need illumination and that the totality of the
outfit’s relevant resources is brought to bear on these
projects. This njeans that Control will know, in so
far as such things may be known, the agenda of affairs
of state and will undertake to have useful knowledge
prepared in advance of formal action.

c. Seeing that regular and special surveillance and
research are programmed according to the priority of
their importance.

d. Doing some thoughtful anticipating of problems be-
yond the horizon.

2. Arbitrate disputes among the professional staff in
mid-course.

3. Review and criticize the finished product from the
point of view of its form and probe it for possible inaccu-
racies or want of balance.

4. Maintain standards of excellence for all work.

5. See that the finished product is reproduced in ap-
propriate form.

6. See that it is properly distributed and that a record
is kept of recipients.

Now in virtually every one of these tasks, Control may
and sometimes does develop friction with the professional
staff. For example, there is ample room for dispute as to
who best knows the score and who thus is best equipped to
set priorities. The professional staff which is continuously
close to world developments may feel that its inside knowl-

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edge of events furnishes a better basis of judgment than
that which is afforded to Control.

Or consider the situation when Control vetoes the
undertaking of a project on the ground that the subject is
inconsequential. It may be that the unit which wishes to
do the project is working on a quiet part of the world,
where all projects are of a relative unimportance. If the
professionals are capable and devoted men, this is one fact
which will certainly escape their attention: their work to
them must inevitably be the most important thing in life.
All right. Control may reply, let them work on their low-
priority jobs— they have nothing better to do— but they
must also expect low priority on clearance, reproduction
of their product, and its distribution.

Or again, let Control raise an eyebrow at what it considers
impolitic language or let it doubt the soundness of a sub-
stantive conclusion and see what happens. The profession-
als are being questioned in the very field where they are,
formally at least, entitled to regard themselves beyond
criticism. They will always be indignant at what they call
the tampering or tinkering of some lesser expert.

But the fact is that the professionals are a long way
removed from the freedom of the institutions of learning
from which they sprang, and which they reverence, and
although what they have to offer to intelligence is its single
priceless ingredient, they cannot expect to enjoy the same
sort or degree of freedom under the driving practical obli-
gations of government service. There is thus a tremendous
inherent conflict between the very terms “professional
staff" and “Control.” How can it be ironed out?

I doubt if it can ever be completely ironed out so long
as Control is established at the top of the administrative
pyramid. The ideal solution seems to me to push the con-
trol function back down the hierarchy as far as possible.
If this were done, each professional unit would have its
own control officer. Almost certainly he would be a trusted

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member of the professional staff who had a flare for the
control job. More than likely he would be the unit chief.
If this were the case at the lowest administrative level, the
unit chief would be devoting half his energies to parochial
problems and half to the control problems of the whole
large organization. The chief at the next level up would
be spending less energy on his local problems and more on
the general ones. The chiefs of the top echelon would
constitute the governing board of all the control officers,
and the director of the organization, the ex officio chair-
man. In such a fashion the people closest to the realities
of substantive work would be setting the standards of
excellence, the procedures, styling, etc. But there are enor-
mous practical difficulties to such a solution. I list them:

1. Budget wizards would immediately perceive a la-
mentable duplication of work and would insist on central-
izing the function and reducing the staff necessary to
perform it.

2. If by a miracle the budget wizard did permit it,
there would be the problem of the relationship between
the small unit chief and his control officer (if the two jobs
were not merged in the chief). After all, the control func-
tion is of highest importance and the unit chief could ill-
afford to delegate it.

3. If he did not delegate it, he would have to perform it
and his other duties as well. This would mean that he had
more to do than one man should be asked to do. In fact
there probably are not enough capable men for this sort
of job to fill the vacancies.

4. If capable men could be found they would not be
likely to accept the salary which Civil Service prescribes
for a low-level unit chief.

In spite of these practical difficulties, the decentraliza-
tion of the control function seems to me wholly worth
striving for. Nothing that I can think of will better thrust
responsibility upon those who should be carrying it.

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But if we abandon the idea of decentralizing for the
moment and cope with the situation in its practical reali-
ties; if we agree that Control must, even if temporarily, be
centralized at the top, there are some principles which it
would do well to follow.

First, as already noted, the personnel of Control should
have as many of the professional gifts of the professional
staff as may be. If Control is made up of people who have
gone through some professional mill, have standing in
their own right, have respect for the professional achieve-
ment of others— and if in addition, they have had intelli-
gence experience at the working level— the curtailments
which they impose upon staff freedom will be taken with
much better grace. Per contra , with rare exceptions, noth-
ing will make their necessary activities more unpalatable
to staff than that their previous experience or field of
specialization was remote from the pursuit of knowledge.
If they are not entitled to an honorary membership in the
club, dissidence and resignations (or applications for trans-
fer) will follow in their tracks.

Second,. Control must continually police the amount of
paper work it requires of staff and see that it is kept at a
minimum. If professional staff is not everlastingly com-
pelled to fill out forms, write memos of defense, maintain
over-elaborate bookkeeping of its efforts, participate in
complicated paper procedures, etc., it will accept the more
important regulation from Control with far less animus.

Third, Control must be able to demonstrate its utility
by the swift performance of its job. It must act promptly
in its authorization of projects, in its clearance of projects,
and in its reproduction and distribution of the finished
product. Furthermore, in the interests of speed it must be
willing to break its own rules.

If Control can be properly manned and if it will spend
part of its efforts in restraining its natural bureaucratic

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tendencies it may look to much more effective relations
with staff— and pleasanter ones.

The preceding four problems had a string of continuity
running through them; the next six are not so closely con-
nected to each other.

Problem No. 5: What is the most effective administra-
tive arrangement to govern the performance of a field
force ?

It goes without saying that the proper conduct of the
intelligence business requires a force on foreign duty. In-
telligence cannot make good on either its surveillance or
its research function unless it can physically project part of
itself out to the places where things are going on and
where the raw materials of understanding are being pro-
duced. Without a field force of its own, any departmental
intelligence organization will lose a needed sense of reality
and immediacy. Ideally this force should be engaged in
whatever type of activity is required to deliver the goods:
overt, clandestine or both. And if the force in question
were engaged in both kinds of activity, it should of course
be under a single management. Were such an arrange-
ment possible, the overt staff could furnish the clandestine
with the specifications of the missing pieces. And on the
other hand the clandestine staff could not only furnish the
overt with such pieces, but more importantly, could pass
on new hypotheses which it acquired in its subterranean
wanderings. Perhaps to gain these advantages some coun-
tries have, set up departmental field forces which engaged
in both overt and clandestine activities. The Soviet
Union’s embassy in Ottawa sheltered the representatives
of five home departments (a sixth was about to join) who
among other things presumably engaged in both open and

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secret intelligence work . 8 But perhaps, again, such coun-
tries set up such joint activities because they are innocent
of the difficulties and blind to the risks.

The realities are wide of the ideals. As is demonstrated
by the Soviet experience, the risks of disclosure of clandes-
tine activities were large and when the break occurred the
entire Ottawa mission was discredited. Not only this, but
much more significantly, all states beyond the curtain now
felt justified in putting Soviet missions on their soil under
restrictions which they might not otherwise have chosen
to impose. Needless to say the restrictions imposed ad-
versely affect the permissible overt intelligence activities.
Thus it would seem necessary to recognize the risks of such
combined activities and to require that clandestine activities
in the fields be cleanly separated from overt. This being
the case, in the succeeding paragraphs I make the separa-
tion and will confine myself to the problems of the overt
departmental field force.

The administrative problem with respect to such a field
force arises from the following circumstances:

First, the actual man who is sent out, say to Great Fru-
sina, should be a member of the professional home staff
handling Frusinan matters . 4 To be effective in the field

■Report of the Royal Commission . . . June 27, 1946 (Ottawa, 1946)
pp. 12-17 and esp. 19-29. The home departments represented were: The
NKVD (Security Police), Central Committee of Communist Party, The
Commissariat of Foreign Trade, the Red Army, and of course the Com-
missariat for Foreign Affairs. The Navy was probably about to place its
own representative.

4 On this point I will not yield an inch. The worst disfavor that can
be done an intelligence operation is to send to the field personnel who
are specially recruited for field duty and ship them out before they have
worked their way into the bosom of the home staff. Field men should be
home men who also have the outgoing, adventurous, and worldly qualities
which a foreign assignment demands. They should know without thinking
what the main problems of the home staff are, what it does not know,
what it must find out, what it needs in the way of physical materials
procurable only in Great Frusina, etc. They should know personally, and,
if possible, they should like and admire the members of the staff they are
leaving behind. Even under these conditions the problems of perfect
understanding are not negligible.

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he must maintain the closest possible relations with his
home unit.

Second, the large organization (of which the Frusinan
unit is a small part) which sends the man out to Great
Frusina will be sending other men to other parts of the
world. To handle the housekeeping of such an operation
it will be forced to set up some sort of central administra-
tive unit in the office of the chief of the organization. Fur-
thermore, in as much as the man in Great Frusina may find
out things about Pakistan which should be brought to the
attention of the home Pakistan unit, and the man in Lon-
don pick up data of interest to the Far East Division, there
will be an administrative reason to interpose a substantive
unit alongside the administrative one. This latter unit
will see that all interested consumers of the end-product of
field work are served. Thus the front office of the large
organization comes to have a dual administrative stake in
the field operation.

Third, when the field man arrives in Great Frusina he
acquires a third boss. This is the chief of the U.S. official
mission there, who in turn reports to the Secretary of
State and the President.

The problem is how to maintain the close personal con-
tact between the field man and the chief of his small Fru-
sinan home unit— which is absolutely vital— and at the
same time keep the other parties to the triarchy satisfied.
To this problem I have no sure answer; in fact I do not
think there is one. The hope is that human understanding
and cumulative experience in making adjustments will
bridge the inherent difficulties. This will be done more
readily if everyone involved in the transaction realizes the
ultimate importance of keeping the Frusinan professional
staff as closely and informally tied to their field representa-
tive as possible, and makes every reasonable effort to
accommodate and further that relationship.

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Problem No. 6: Is there a library junction in a strategic
intelligence organization?

The answer is, yes.

An intelligence operation which has the attributes of
both the large metropolitan daily newspaper and the large
research foundation handles an enormous amount of in-
coming physical material. In its newspaper guise it re-
ceives a continuous flow of regular and irregular reports
from its own field staff, some of which come in by cable
and some by pouch. It is also likely to receive similar re-
ports from other intelligence outfits in roughly the same
line of work. It subscribes to the intelligence equivalent
of the news services— the best example of which is the
government operated monitoring service which handles
popular foreign radio programs. Pretty much as a matter
of course it receives, on an exchange basis, the finished
output of other departmental organizations which are fol-
lowing and studying conditions abroad. There are many
other items in this general category covering the tonnage
of classified and unclassified documentation that flows into
Washington from all over the globe.

In its research-foundation guise, it deliberately and con-
sistently procures other materials which its program of
research makes essential. It subscribes to a wide range of
professional journals, foreign newspapers, the official pub-
lications of foreign governments, officials and unofficial
statistical series, and so on; it also keeps up its collection of
standard works of reference, and the most important new
books on subjects of peculiar interest. It has a call upon
the Library of Congress and has inter-library loan arrange-
ments with the great libraries of the country.

The problem is whether or not all these functions and
some others should be handled in one central place, and
whether or not that one central place should also be the
repository for the physical materials. It is my conviction

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that one unit should handle these functions and should be
the curator of what comes in. In short, I am an advocate
of a central library of all the materials (maps excluded)
which an intelligence organization needs.

A central library of the sort I advocate may cpnsist of
several separate parts: one part would be made up of un-
classified printed books and magazines— this collection is a
highly specialized one; it consists of the standard works of
reference and the new technical publications not readily
available elsewhere. A second part might be composed of
photographs; a third and most important part consists of
classified documentary materials of all sorts. The library,
no matter how many parts it has, has the following tasks:

1. It acquires materials as a result of its own activities.
This means that it procures such things as the latest foreign
year books and gazettes and statistical annuals and direc-
tories; it procures the record of foreign parliamentary
debates and other official publications of foreign govern-
ments which bear upon the mission of strategic intelli-
gence; it procures foreign newspapers and technical jour
nals. In this sort of procurement it has had the advice of
the professional staff at home and in the field.

It also collects classified documents. It knows, for
example, that practically all State Department cables (the
non-operational ones) are important; it knows that
nearly all attach^ reports and studies of foreign situations
by other federal departments and agencies like the De-
partment of Agriculture and the Tariff Commission are
important. It knows that everything put out by this or that
other intelligence operation is important. The library
endeavors, therefore, on its own to procure all such ma-
terials. It will place blanket orders wherever it can and
get the entire official output of a large number of organiza-
tions whose line of work is similar. In addition, when a
member of the professional staff asks that such and such a

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INTELLIGENCE IS ORGANIZATION
document be obtained— naming it by source and subject,
if not title— the library gets busy.

2. It registers such documentary materials and by cir-
culating a daily mimeographed sheet informs professional
staff as to what has come in.

3. By rigorous organization rules, by policing, cajolery,
and every other device it endeavors to intercept similar
materials which the staff has acquired on its own, and to
register them as any other document. The professional
staff will acquire such materials through its personal con-
tacts with opposite numbers in other organizations. Often
they are working papers, or notes, or memoranda not con-
sidered suitable for routine distribution. Often they are
what might be classed as operational as opposed to infor-
mational papers and therefore inappropriate for outside
scrutiny. There is a very large amount of this kind of
material which the senior staff member will come by; it is
likely to consist of his most valuable stuff.

The library should be allowed to register, index, and
reissue it to the acquiring staff member on what amounts
to permanent loan. 8

4. It indexes all materials no matter how acquired on
standard 3x5 library cards according to place of origin
and subject. It gives each document a file number and a
place in the central file. A meaningful indexing operation
is the most valuable and costly part of the whole library
business. Unless it is performed, there is no library in the
real sense of the word. There exists nothing more than a
formless accumulation of paper.

5. Upon call it delivers to professional staff such items
as they require for their work, and keeps track of where
these items are. If some other staff member later wants the
document, the library recalls it or otherwise arranges for
him to see it.

A library which operates along these lines will not be

“See p. 137, Problem No. 7.

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arrogating to itself functions which properly do not belong
to it (see the next problem, number 7), will be doing a
clean and simple service job, and will in time build up a
large volume of indexed materials. Such a collection is
one of the most valuable assets of the organization.

Problem No. 7: Should there be a separate administra-
tive unit for collection and dissemination?

Before hazarding an answer to this question it would be
well to define the terms.

By collection is meant the exclusive right to procure for
the use of professional staff all the raw materials which it
needs. It means not merely the collection of the items
which I have noted with respect to a library’s collecting
activities, but all other items. For example, a collecting
unit, upon being informed that professional staff is going
to do a study on the Iranian Tudeh Party’s views on the
Arab League, has the duty to collect information on this
subject which will answer every conceivable question the
mind of the Iranian specialist can pose. Thus collection in
this sense involves collecting as any good librarian (of
books) fulfills that function, and also collecting as a profes-
sional researcher collects after he has exhausted the static
resources of his library.

By dissemination is meant the exclusive right to distrib-
ute to consumers: (a) raw materials which the surveillance
people pick up in the field or at home, 6 and (b) the finished
product as turned out by the professional staff.

In my view, to establish a collection and dissemination
unit with those duties is little short of preposterous.
With assignment of an exclusive collection function I find
myself at greatest variance. For it is one thing for a library
to do a good job of acquiring basic stuff of general utility
(like State Department cables and embassy reports), and

"These may be the reported observations of attaches, photographs,
maps, newspapers, books, magazines, etc.

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quite another thing to vest in a librarian the exclusive
right to acquire all the materials which, say, Mr. Jones, an
Iranian specialist, will need to do his study of the Tudeh
Party and the Arab League. It is quite another matter to
require Mr. Jones to communicate to a collector what he
thinks he will need to do his study. And it is quite another
matter to make it administratively difficult, if not impossi-
ble, for Mr. Jones himself and in person to call on people
in other government agencies and leaf through their files
on Iran.

The collecting phase of research cannot be done once
and for all at the initial stage of a project; the collection
phase pervades all the other phases, and indeed is the phase
which is never completed; and the only man to do the
collecting of data (beyond obvious materials) which he
cannot name by title is the one who knows what he is
looking for. Should there exist a man in the library unit
who was so great an Iranian expert that the professional
Jones could make his wants known without giving a lec-
ture course on Iranian life and politics, then this man
should not be on the library staff. He should be on Mr.
Jones's staff.

It will be argued that unless collection is centralized
two calamities will result: one, professional staff will un-
systematically canvass outside sources of information and
as a result of uncoordinated and repetitious requests for
the same material will antagonize these sources. Two, pro-
fessional staff, upon acquiring materials through its own
collecting efforts will tend to set up its own small library
and hoard materials which other parts of the organization
should have.

There are answers to both of these points.

One, anything that professional staff can ask for by spe-
cific designation should of course be procured by the regu-
lar acquisition methods of the library, provided the library
can act with speed. Materials that professional staff cannot

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specifically designate, it must acquire itself. In these cir-
cumstances there is bound to be certain unavoidable dupli-
cation of requests. But this is not necessarily the unpar-
donable sin— especially when it results in a higher level
of accomplishment. I have long felt that the man who
makes a profession of blustering with indignation every
time two people from the same agency make identical
calls upon him would be more suitably employed else-
where.

Two, professional staff will in fact tend to build up its
own library. This is as it should be. On the other hand
professional staff is the first to realize the advantages of
having its private loot registered and indexed by the li-
brary. It may then get it back and in most cases keep it
forever. Certainly not all private loot will be registered,
and the organization will suffer accordingly, but that por-
tion which is not turned into a central file will be relatively
unimportant. Constant effort on the part of management
and fast registration and return of such materials will keep
the quantity small.

What about the dissemination function? First, what
about the dissemination of the so-called raw material out
of which the finished product is built up. Should it be
disseminated in raw form? I see no reason whatever for
the outside distribution of this material in its raw form.
Let me be clear about the words "outside” and "raw form.”

By outside I mean outside the parent intelligence or-
ganization. Of course it must be circulated inside the or-
ganization and circulated with speed and system. The
prompt and effective routing of incoming data to the home
surveillance and home research people is one of the li-
brary’s prime jobs. But I do not feel that routing this
material in the raw form outside is doing anyone a favor.

By raw form I mean as it comes in— precisely as it comes
in. A certain amount of it which the professional staff
regards as appropriate for outside distribution should be

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INTELLIGENCE IS ORGANIZATION
sent out after it has passed the critical review of the reign-
ing experts. The rest should be described on a daily or
weekly bulletin by source or subject or both, and outside
persons interested in it should encounter it first in this
bulletin. If they wish to see an item of interest let them
come around and draw it out of the library. 7

Admittedly there are disadvantages which such a pro-
cedure imposes on outside users, but the disadvantages are
small compared to those attendant upon an indiscriminate
circulation of everything that comes in, in its original
form. In the present state of affairs when the field work
is done by far too many inexpert people and when their
virtues are likely to be calculated in terms of the bulk of
paper they send in, there seems to be good reason to estab-
lish some sort of high-grade professional screen through
which the raw material must pass on its way out. In Chap-
ter 10, I touch on this problem again.

Second, what about the dissemination of the intelligence
organization’s finished product?

That the daily or weekly summaries, the reports, studies,
maps, etc., are delivered to people with policy, planning,
and operating responsibilities should be and is a matter
of gravest concern to every person in the organization. It
is a function of ultimate importance. There are two rea-
sons why it should not be placed in the hands of a special
collection-and-dissemination unit and why it should be
placed in what I have earlier called Control.

Administratively speaking, Control must know where its
goods are being sent and how received. It has, hands
down, the first claim on the records of distribution and

T This indeed is a system widely held among established intelligence
organizations. There is, however, within most of them a continuing pres-
sure on the part of the library staff to send out the raw stuff before it has
been vetted by the professionals. This pressure is part of the same phe-
nomenon which gets an aggressive library unit into the "Ask Mr. Foster”
business (see above, p. ZB). People who aTe close to the handling of in-
coming stuff, its registration, its indexing and filing, have a pardonable
desire to show off a bit.

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receipt. If the keeping of such records is placed elsewhere,
Control must still have its duplicate set. Hence it would
seem reasonable to vest the whole job in Control. Sec-
ondly, Control is closer to 4iie professional staff than any
other unit, and Control and Professional Staff together
know more about the substantive side of the job than
anyone else. Together they know more about the prob-
lems which the work is designed to serve, and hence more
about the people who are dealing with the problems.
Their continual striving for the applicability of their
knowledge automatically put them in close touch with the
potential users. Thus there is a sound substantive reason
for them to perform the dissemination of the finished
product.

In terms of the reasoning in the above paragraphs, I find
it impossible to accept the concept of an administrative
unit to handle exclusively the collection-and-dissemination
functions. Collection of materials which can be designated
by name or place or origin can be and should be collected
by the library; other materials must be collected by profes-
sional staff. The dissemination of both the raw materials
and the finished product is a matter in which the profes-
sional staff has such an intimate stake that it cannot be
excluded. My own answer to the problem is a skillful and
active library and a small distribution unit attached to the
office of the chief of the organization where it will have
close contact with Control and the professional staff.

Problem No. 8: How should the biographical intelli-
gence function be performed?

Acquiring knowledge of personalities is one of the most
important jobs of an intelligence organization. It is also
an enormous job. The ideal biographical file would have
tens of thousands of names 8 in it, and against each name

1 A huge problem In itself is to decide which tens of thousands of the
world's billion possible name arc to be included. It is, however, not an
administrative problem and I will not go into it here.

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INTELLIGENCE IS ORGANIZATION
a very wide variety of data. There must be a wide range
of data because there are so many pertinent questions al-
ways being asked about people. What sort of man is he?
What are his political and economic views? What are all
his names and when was he born? Can he speak English?
Who are his intimates? What are his weaknesses? How
long is he likely to hold his present standing? Where was
he in 1937? Etc.

These questions and literally hundreds of others show
that the perfect biographical note must include a large
amount of cold factual information and a large amount of
critical appraisal. The users of the note likewise partake
of this two-way division of interest. A great many of them
want to know nothing more than the exact title of the
man’s present job or his rank or his street address. Another
gToup of users must know his probable chances of becom-
ing the No. 1 man in his party, army, company, or church;
his probable sentiments on the local sugar situation, on
Mr. Bevin, or on the Christian faith. The first set of users
does a considerable part of its business by telephone; the
second by more or less formal request. In these terms the
administrative problem begins to take shape:

One, a large amount of factual data must be assembled
on a large number of people. Since much of this is a scis-
sors-and-paste job it can be performed by people of cleri-
cal-plus status.

Two, these factual data must be in a central file where
they can serve the use of the telephone customer. But since
it is impossible to say where factual data begin and end
and impossible to guarantee that all telephone customers
will request only factual data, all biographical stuff should
be kept in this same file.

Three, the critically evaluative part of the biographical
note is beyond the competence of the clerical-plus group
engaged in snipping biographical dictionaries and current
newspapers.

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STRATEGIC INTELLIGENCE

The problem is, do you maintain the central file and
build up the biographical staff with high-grade profession-
als; or do you break up the central file into its regional
components and make the regional surveillance and re-
search units keep up their parts; or do you try some com-
promise?

It appears to me that if the first course is adopted, i.e.
build up a large and complete biographical staff or Per-
sonalities Unit, two evils result: one, since it is ridiculous
to try to divorce people from the things that they do, the
Personalities Unit is likely to become a cluster of small
regional research units which duplicate a good part of the
business of the main regional show. Two, it is very poor
practice to try to stop this duplication by telling the re-
gional units of the main show that they shall not have
professional knowledge of the personalities of their re-
spective areas.

If the second course is adopted and the whole operation
decentralized to the main regional units, there are two
other evils of equal magnitude: one, loss of the advantage
of a central file and central telephone service. Two, the
kind of professional mind and outlook characteristic of
the main regional units will not have adequate enthu-
siasm for the scissors-and-paste part of the job and will
not give it proper emphasis.

Some sort of compromise is the only way out. The file
must be kept together, the Personalities Unit must furnish
the clerical and clerical-plus help; and the regional units
must recruit high-grade professionals for their share of
the burden. There is no good reason why these specially-
recruited people should be the only ones in the regional
units to work on biographies, nor that they themselves
should work exclusively on biographies, but there is every
reason to insist that whatever the circumstances they or
their professional equivalents put in the requisite hours
on biographical business. In the face of a tight deadline

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INTELLIGENCE IS ORGANIZATION
on a more compelling project there will always be a tend-
ency temporarily to starve biographical work by merging
the biographers with other staff. This must not happen.

Problem No. 9: What r'j the best disposition of the map
problem ?

The map is one of intelligence’s most useful tools and
most useful vehicles. It is of paramount importance to
the work of the professional staff and it is the most dra-
matic and direct way of presenting a certain large block
of their findings. Thus there are at least two aspects to the
problem of maps which an intelligence organization must
confront. The first of these is the problem of a map col-
lection; the second, the problem of map-making or car-
tography.

Consider the collection first. It should consist of all the
maps produced anywhere in the world which contain the
latest data suspectible of presentation on a map. This is
a large order. Few intelligence organizations come within
shouting distance of the goal, but they strive for it with
what resources they can muster. For the ideal map collec
tion is one of the most powerful reference works imagina-
ble. It tells the political specialist how the Communist
vote in Brazil’s last election was geographically distributed
and what the new administrative divisions of the U.S.S.R.
are; it tells the economist where the population of China
is concentrated and why new industrial development in
Turkey is improbable. It tells the strategist about terrain
and the logistics man about supply channels.

The administrative problem is, who makes the map
collection and who takes care of it? Is it the job of the
library or is it the job of a special map library?

The answer seems clear in terms of the second map
function, the cartographic or map-making function. An
intelligence organization worthy of the name must make
maps. It must make them as illustrations for its studies

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STRATEGIC INTELLIGENCE

and various other sorts of presentation, and it must make
them for their own sake. Generally speaking, the type of
map which will be turned out is known as the small-scale
specialty map; that is, it is not the kind of map suitable
for planning a military operation, or a railroad right-of-
way, or an artificial port, or an irrigation project. It is a
depiction of data or of a situation which has a geographi-
cal significance and which at the same time can be accu-
rately and strikingly presented on a stylized replica of a
part of the globe’s surface. To make such maps the car-
tographers must have someone else’s maps for the reference
data they may contain, and other information which they
or the regional staff dig out of gazetteers, books, and docu-
ments. In other words, cartography is one of the largest
users of the map collection: without it cartography could
not operate.

The answer to the administrative problem thus begins
to emerge: the map-collecting and the cartographic func-
tions must be kept together. Should both be put under the
library? I see no reason why they should; in fact I see
many reasons why they should not. Chief of these is that
certain phases of cartography are high professional skills
which involve a great deal of the very kind of research
which the rest of the professional staff performs. There is
no good purpose served by putting a high-powered re-
search operation under a service operation. Secondly, and
perhaps just as important, it takes more than an ordinary
talent to collect, index, and curate maps. A great deal of
professional know-how is required, and the best of the
map collectors are likely to be geographers and cartogra-
phers of considerable standing. If their task is regarded as
a simple library-clerical function they will not want the
job, and without them the map collection will be a sorry
thing indeed. Thus the only conclusion I can reach is that
all map duties should be kept together and given the same
administrative autonomy as the largest regional unit. This

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INTELLIGENCE IS ORGANIZATION
is not a perfect solution, for there is bound to be some
overlap and perhaps a row or two between the regional
units and cartography's research commitment, but this can-
not be helped. Alternate solutions seem to carry a far
greater cargo of difficulty.

Problem No. 10: How to maintain a professionally com-
petent staff under the Civil Service Act and under condi-
tions of budgetary stringency .

The intelligence agencies of the regular departments of
government are operating under the jurisdiction of the
Civil Service Commission and are subject to its regula-
tions. Civil Service legislation aims to provide for the
impartial selection of persons best qualified to fill govern-
ment jobs, and none will challenge the validity of this pur-
pose. Unfortunately, this ideal has not been attained.

During the war, manpower was scarce, needs wete great,
and expediency required that individual agencies be given
a fairly free hand in selecting their employees. If you had
a position to fill in an intelligence operation and found a
man who seemed to fit your requirements, the chances
were you could offer him the job. It was unlikely that
he had, or was interested in, civil service status, but that
did not matter.

In these circumstances, and with funds for an expanding
organization, a good staff could be maintained. Keen, ag-
gressive, and competent people were willing, even anxious
to -join up. Once in, they attracted their colleagues, and
the weight and prestige of the intelligence organization
snowballed. It came to be called a "good outfit" and an-
nual requests for funds were apt to find added favor among
the budget people and Congress.

Even in those days it was very difficult to fire and replace
people who for one reason or another were unsatisfactory.
The organization needed to expand, not only to take on
added functions, but also to make room for new and better

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people to do the jobs neglected by the incompetents. After
the war was over, economy in the federal budget became
a political issue: few people were willing to admit that the
intelligence business needed approximately as large a staff
in peace as in wartime. In addition, the civil service regu-
lations began again to be applied with full force.

Throughout the government, including its highly spe-
cialized intelligence outfits, standard reduction-in-force
procedures were followed wherever reduced budgets made
it necessary to reduce staff. In general, these procedures
provide that employees with the slimmest rights of tenure
shall be the first to go. It happened many times that valu-
able employees were dismissed and other people of a lesser
order of competence stayed on. The least valuable people—
those who were virtually unemployable ouLside of govern-
ment— busily consolidated their grip on tenure and took
advantage of all the rights which accrued to them under
the system.

When vacancies occurred they had to be filled by persons
who had the highest qualifications in terms of the civil
service rules; these might have been people who had just
been released by other agencies, and often they fitted poorly
the jobs to which they were shunted. Only in high-echelon
positions and in those requiring the greatest specialization
was it possible to appoint men of outstanding professional
qualification if they had never taken a civil service exami-
nation or never worked for the government.

Good people in intelligence were naturally discouraged
by this situation. Many of them were insecure in their own
jobs, no matter how good their performance had been, and
all of the others were worried by actual or prospective loss
of good staff. Their concern, when communicated to the
outside, became the cause for outside bidding for their
services. Business, industry, their former employers and
colleagues in various forms of non-governmental service
began considering them as available and began making at-

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INTELLIGENCE IS ORGANIZATION

tractive offers. Two forces of disintegration were now work-
ing in concert on the most valuable people. They were
being nudged from within and beckoned from without.

Their loss was a catastrophe to federal intelligence work.
It was virtually impossible to find their replacements any-
where in the country. The only remedy was an heroic one—
highly specialized personnel, such as the professionals in
an intelligence organization, ought to have been immune
from ordinary civil service regulations. I fully realize the
heresy of such a thought, but unless some special provision
is made for intelligence, the whole question of the preserva-
tion of the democratic way may itself become one day
somewhat academic.

The above are by no means the only administrative
problems of the intelligence business, but they are prob-
lems on which much experience has been accumulated
in recent years— at great expense in grief and taxpayers’
dollars.

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PART III

INTELLIGENCE IS ACTIVITY

CHAPTER 9

INTELLIGENCE IS ACTIVITY

I N the language of the trade, the word intelligence is used
not merely to designate the types of knowledge I have
been discussing and the organization to produce this
knowledge, it is used as a synonym for the activity which
the organization performs. In this chapter and the next
two I will discuss intelligence as activity, or perhaps better,
as process. My primary concern will be the large num-
ber of methodological and other problems which are char
acteristic of the intelligence process. But before coming to
these problems I should deal, if only briefly, with the
process itself.

The knowledge, which I have been calling strategic in-
telligence, serves two uses: it serves a protective or defen-
sive use in that it forewarns us of the designs which other
powers may be hatching to the damage of our national
interests; and it serves a positive or outgoing use in that
it prepares the way for our own active foreign policy or
grand strategy. But the important thing to grasp is that,
no matter what the diversity of use to be served, the
knowledge at issue is produced by the process of research.

Sometimes research is formal, highly technical, and
weighty; sometimes it is informal, untechnical, and speed-
ily arrived at. Sometimes a research project requires thou-
sands oi: man-days of work, sometimes it is done in one
man-minute or less.

The research process, especially that of strategic intelli-
gence, is initiated in two chief ways. When the policy
people or planners of our government begin formulating
something new in our foreign policy they often come to
intelligence and ask for background. (They should do
more of this than they actually do.) In their request for
this or that block of knowledge, they stimulate the intel-

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Iigence force to embark upon a piece of research and a
course of specially aimed surveillance. There is, however,
a second way in which the intelligence force comes to in-
itiate research. This is through its own systematic and
continuing surveillance of what is going on abroad.

So important is this general surveillance that it is often
conceived of as separable from research. I do not think
it should be so conceived. Let me discuss it further.

Surveillance, as I am using the word here, is the ob-
servation of what goes on abroad and the deliberate at-
tempt to make sense of it. The actual physical observing
process takes place in foreign lands and at home; it can
take place overtly or clandestinely or both.

In foreign countries we carry it on through a multitude
of open-and-above-board officers— some civilian, some mili-
tary— whose duty is to keep eyes and ears alert and report
what they learn. These officers are the foreign service offi-
cers and attaches which I have mentioned earlier. Each
of them has his field of special interest and competence,
whether it be political, military, commercial, or cultural
affairs, etc., and each is supposed to keep himself and his
principals at home posted within this specialty.

Some foreign governments supplement the work of their
overt officers of this type with espionage activities; that is,
they send out secret agents, or undercover recruiters of
secret agents, to discover and report on matters which
would be difficult to discover overtly. If you would like
a sample of how such activities are established and how
they operate, read Richard Hirsch’s The Soviet Spies* or
the Report of the Royal [Canadian] Commission . . . 2 upon
which it is largely based.

Not all surveillance activities take place abroad; some

! Ncw York, 1947.

a Report of the Royal Commission ... to Investigate the Facts relating
to . . . the Communication . . . of Secret and Confidential Information to
Agents of a Foreign Power, June 27, 1946, (Ottawa, 1946).

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INTELLIGENCE IS ACTIVITY

very important ones take place at home in the intelligence
headquarters. Queer as it may seem to observe a foreign
country from a home observation post, there are several
reasons for this apparent paradox.

First, there must be surveillance at home purely and
simply as a matter of convenience. For example, what the
official French radio beams on the rest of the world is a
matter of considerable interest to us; we should like to
know the content of its political news and commentary.
It does not follow, however, that we must set up a com-
plete radio-monitoring operation in every city of the world.
The technical difficulties would be great, the large staff
necessary to run such operations would be ill-received by
some of the countries, and the costs would be tremendous.
Hence, that extremely important surveillance organiza-
tion known as the Foreign Broadcast Information Branch
is established at home. Its monitoring stations pick up the
most significant programs; the home office transcribes
them, translates (and sometimes abstracts them), repro-
duces them, and sends them around to officers of the gov-
ernment. Departmental intelligence organizations are, of
course, the chief beneficiaries.

A similar case will hold for official use of the large
amount of foreign news which correspondents of our do-
mestic press gather and cable home to their papers. Sharp
newspapermen, though they have no connection with the
intelligence work of our federal government, are impor-
tant observers of foreign affairs and important, though in-
advertent, contributors to the surveillance activity under
discussion. Wise is the government not to try to intercept
their dispatches at the point of origin, but to let them
land in the home cable rooms of our domestic papers and
put the content to official use. Doing the business this way
means that an intelligence operation engaged in overt sur-
veillance will have to have some small force at home which
follows the best foreign news.

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STRATEGIC INTELLIGENCE

There is a second reason for home surveillance activity.
It is based upon the proposition that anything being
hatched abroad to our detriment has about it a conspira-
torial air: it is being hatched in secret and there are several
people or groups of people party to it. In the world of
international relations these parties to the conspiracy may
be residents of half a dozen countries, and the story of
what they are up to, if ever pieced together, must be pieced
together from fragments supplied from the half-dozen dif-
ferent national sources. For example, what Franco was
considering at a given moment might be less available
from Madrid sources than from those of Mexico City,
Buenos Aires, Lisbon, Bayonne, and Rome. This is not to
argue that Washington is the only place where surveillance
should take place, but it is to argue that given the com-
plicated nature of the modem world, there must be a lis-
tening and observation post and clearing house in a central
spot.

However conducted— overtly or clandestinely, abroad or
at home— surveillance serves two vital functions: It tells us
when another state is contemplating a policy or an action
hurtful to our national interest. In this role it stimulates
the production of the defensive-protective knowledge nec-
essary for our security. It also tells us what we must know
about affairs abroad if we are to implement our own active
outgoing policies. In this second function the surveillance
force has collected, observed, and reported the wide range
of phenomena which I described in Chapters 2 and 3 and
without which strategic intelligence would have little con-
tent of current importance.

In talking of surveillance there is always the danger of
portraying something entirely passive. Surveillance sounds
like sitting back and awaiting the impression. But surveil-
lance worthy of the name must be vigorous and aggressive.
It must be aggressive in that the observer covers as much
ground as possible, seeking to expose himself to a maxi-

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INTELLIGENCE IS ACT IVI TY

mum number of phenomena; and more importantly, it
must be aggressive in that the observer does a maximum
amount of following up his impressions of these phe-
nomena.

So long as I use the imprecise term “following up” I am
on safe ground with the general reader and the intelligence
brotherhood. It implies checking on the accuracy of
sources, comparing divergent accounts, and gaining per-
spective by broadening the field of inquiry, finding new
leads— out of all of which emerges a proposition which
seems the truest of all possible propositions. Now I would
like to call this process of following-up by the more precise
term of "research” and say that a certain kind of research
must accompany the surveillance activity. This research
is a systematic endeavor to get firm meaning out of impres-
sions. Surveillance without its accompanying research will
produce spotty and superficial information.

Research has a greater importance than merely supply-
ing the cutting edge to surveillance. It has a role entirely
its own— in the service of the outgoing positive aspects of
policy. In wartime it produces the knowledge of enemy
strategic capabilities, enemy specific vulnerabilities; it
produces the knowledge of the political and economic
strengths and weaknesses of the enemy; it produces the
knowledge of the physical plant which the enemy is using
for war-making. On such knowledge our own offensive
military plans were based. In peacetime, it produces the
kind of knowledge of foreign lands that you would like
to have if you had to decide whether to sponsor a Euro-
pean economic recovery program and then to defend it
before Congress and your fellow countrymen.

Research is the only process which we of the liberal tra-
dition are willing to admit is capable of giving us the
truth, or a closer approximation to truth, than we now
enjoy. A medieval philosopher would have been content
to get his truth by extrapolating from Holy Writ, an Afri-

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STRATEGIC INTELLIGENCE

can chieftain by consultation with his witch doctor, or a
mystic like Adolf Hitler from communion with his in-
tuitive self. But we insist, and have insisted for genera-
tions, that truth is to be approached, if not attained,
through research guided by a systematic method. In the
social sciences ■ which very largely constitute the subject
matter of strategic intelligence, there is such a method. It
is much like the method of physical sciences. It is not the
same method but it is a method none the less . 4 It can be

a I am including the science of military strategy as a social science
along with social psychology, economics, politics, sociology, geography,
anthropology, history and others. It is worth noting that the intelligence
of physical science and technology has a very heavy overlay of social
science. For example, it is a very important matter to know precisely
where Country Y is in its development oE new fuels, vaccines, or weapons,
and presumably only a man well-versed in the appropriate exact science is
competent to handle the technical details of this intelligence problem.
But just as important, possibly even more so, are the predictable effects
of such developments upon the nation which produces them. If Country
Y has found a new fuel which will revolutionize its aviation industry, has
Country Y the desire and the cash to go through this revolution? And if
Country Y docs go through the revolution, what will be the results upon
her commercial aviation policy, her attitude in foreign relations, etc.?
These latter questions are of greatest importance and the answers to
them do not necessarily lie within the province of the physical scientist or
engineer. The answers are the stock in trade of the social scientists. Any
foreign country working on the U.S. in the atomic age should be every
bit as concerned about how our possession of the bomb and other atomic
energy secrets will affect our mm domestic and foreign policy as it should
be in trying to find out our highly technical secrets. I should therefore
expect the U.S. Division of Country Y’s central intelligence outfit to
employ a few scientists who arc trying to find out how we do it and a
larger number of social scientists to put their findings into the proper
political, social, and economic contexts.

4 It is often pointed out that the method of the social sciences differs
most dramatically from that of the exact sciences in the enormous diffi-
culties they encounter in running controlled and repetitive experiments
and in achieving sure bases for prognosis. In spite of these great disad-
vantages, social scientists go on striving for improvements in their method
which will afford the exactnesses of physio and chemistry. Some of the
physical scientists, like President Conan t of Harvard, while respectful
of the "impartial and objective analyses” achieved by the social scientists
would dissociate the two methods. They feel that the method of social
science is so different from that of the physical sciences (for the reasons
given above and others) that to try to make the two cognate is only to
confuse. To quote Mr. Conan t, "To say that all impartial and accurate
analyses of facts are examples of the scientific method is to add conTusion

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INTELLIGENCE IS ACTIVITY

described in any number of ways. For instance, one could
easily paraphrase the discussion of the physical sciences (as
set forth by President Conant of Harvard) and say that the
method of the social sciences involves the development of
new concepts from observations and that the new concepts
in turn indicate and lead to new observations. But to ex-
pand this admirably simple formulation so that it would
fit the special case of the social sciences would perhaps be
less useful than to spell out another which is specifically
designed to meet the present requirements.

In this other formulation seven steps or stages are recog-
nized:

1. The appearance of a problem requiring the attention
of a strategic intelligence staff.

2. Analysis of this problem to discover which facets of
it are of actual importance to the U.S. and which of several
lines of approach are most likely to be useful to its gov-
ernmental consumers.

3. Collection of data bearing upon the problem as for-
mulated in stage 2. This involves a survey of data already
at hand and available in the libraries of documentary ma-
terials, arid an endeavor to procure new data to fill in gaps.

4. Critical evaluation of the data thus assembled.

5. Study of the evaluated data with the intent of finding
some sort of inherent meaning. The moment of the dis-
covery of such meaning can be called the moment of
hypothesis. In reality there is rarely such a thing as one
moment of hypothesis though some students of method,
largely as a convenience, speak as if there were. Nor can
it be said categorically at what stage in the process hypoth-
eses appear. One would be pleased to think that they

beyond measure to the problems of understanding [physical] science.”
(James D. Conant, On Understanding Science, New Haven, 1947, p. 10.)
However Mr. Conant, as a chemist, is chiefly concerned to avoid confusion
in the field of pure science. The social scientist has a very different
concern.

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appeared at this, the respectable stage 5, but in actual prac-
tice they begin appearing when the first datum is collected.
They have been known to appear even before that, and
they may continue to appear until the project is closed out
—or even after that.

6. More collecting of data along the lines indicated by
the more promising hypotheses, to confirm or deny them.

7. Establishment of one or more hypotheses as truer
than others and statement of these hypotheses as the best
present approximations of truth. This is the last stage
and is often referred to as the presentation state.

At each of these stages two sorts of methodological
problem arise. One sort is characteristic of all systematic
research in the social sciences, the other derives from the
peculiarities of intelligence’s research activities. To put it
another way: strategic intelligence has a set of methodo-
logical problems all its own which are relatively unknown
to the social scientist at work in his university. My prin-
cipal concern in the next chapter will be with this class
of special methodological problems.

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CHAPTER 10

SPECIAL PROBLEMS OF METHOD IN
INTELLIGENCE WORK

S trategic intelligence confronts difficulties at each stage
in the method discussed in the last chapter. As I have
said, these difficulties are not general to all research in the
social sciences; they are peculiar to intelligence work. In
the next pages I will discuss them stage by stage.

The word "problem” can cause some confusion. I use
the word frequently and in two quite different senses.
These I will tag throughout as "methodological prob-
lem,” by which I mean a problem characteristic of the
method of trying to establish a new approximation to
truth, and "substantive problem,” by which I mean a prob-
lem in the actual subject matter of strategic intelligence.
As an example of a "substantive problem” consider the
strategic stature of the Chinese Communists; as an exam-
ple of a "methodological problem” consider the means you
would employ to get the basic data on the Chinese com-
munists’ military establishment.

1. Stage One , the appearance of the substantive prob-
lem

The substantive problem in strategic intelligence can
emerge in three principal ways.

a. The substantive problem may emerge as a result of
the reflections of a man employed to do nothing but an-
ticipate problems. In actual fact, the intelligence business
employs all too few of such men. But suppose there are
such men; their job is to ask themselves the hard, the
searching, and the significant question and keep passing
it on to professional staff. An intelligence operation should
be bedeviled by such questions, and a substantial part of

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its work program should be concerned with getting an-
swers. A Pearl Harbor disaster is to be ascribed in no
small measure to the absence of some unpleasant and in-
sistent person, who, knowing of the growing animus of
Japan, kept asking when is the attack coming, where is
it coming, and how is it coming? 1

The methodological problem involved here is a very
slight one, on the surface, at least. It consists of devising
the means by which such anticipators will be sure of for-
mulating good substantive problems. The only answer lies
in picking a man who already knows a good deal about
the substantive area in which he is supposed to ask ques-
tions, and who has an inquiring mind; and then see to it
that he has ready access to every scrap of new incoming
evidence on it, access to everyone who knows about it, and
freedom from other burdensome duties. But if you go
below the surface and ask, how does one come to ask
oneself good questions, you start down one of the main
roadways of epistemology. It is not my intention to do so.

b. The substantive problem can emerge when surveil-
lance makes one aware of something unusual. For ex-
ample, suppose the people watching Great Frusina learn
that that country is expanding its Christian mission pro-
gram in the Belgian Congo and that it has named a certain
Brother Nepomuk as aide to the new director. If surveil-
lance is sharp enough to recognize the unusualness of this
shift in a minor part of Great Frusinan policy it has ini-
tiated a substantive problem which may be very important
when followed up, or it may be of no importance at all.

The methodological problems here are very similar to
those just touched upon: how can surveillance assure itself

1 See Seth W. Richardson (General Counsel for the Joint C o ngre ss ional
Investigating Committee [on Pearl Harbor]), "Why Were We Caught Nap-
ping at Pearl Harbor?" Saturday Evening Post (vol. 219, no. 47, May 24,
1947). Mr. Richardson documents the proposition which is generally
accepted.

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of spotting the unusual, the really unusual? How can it
be sure of putting the finger on the three things per week
out of the thousands it observes and the millions that hap-
pen which are really of potential moment? The answer is
the same as the former one: procure the services of wise
men— and wise in the subject— and pray that their myste-
rious inner selves are of the kind which produce hypoth-
eses of national importance.

c. The third and last way in which the substantive
problem can emerge is at the direct instance of the con-
sumer. For example, let us suppose that the policy people,
who are prime among the intelligence consumers, are fac-
ing up to a revision of the established China policy. Let
us assume that they summon sofne of the control and
professional staff of intelligence to a meeting where the
problem is put on the table. In the course of this meeting
there will appear to be aspects of the China question which
the policy people have not had to know about before. Let
us assume that they have to do with population. A pros-
pective change in policy has caused a substantive problem
to emerge.

There is no real methodological problem in this case as
presented. From the point of view of the intelligence or-
ganization, things have gone just as they should. To be
sure, the assignment is so large and so general as to present
serious difficulties, but in as much as intelligence was sum-
moned to the meeting, intelligence may assume a good bit
of further guidance from the consumers in precisely shap-
ing the substantive problem to their needs. (This is stage
2 and will be discussed immediately.) But what happens
all too often is that the decision to revise the policy is
taken and discussion begun with intelligence not included.
Weeks later, when the policy people are close against an
immovable deadline, they discover they must have a new
population estimate from intelligence and that at once.
They raise a substantive problem all right, but they raise

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it to the consternation and despair of intelligence, which
is asked to do a month’s work over night.

2. Stage TwOj the analysis of the substantive problem

The substantive problem has emerged in very rough
form. Before the surveillance or research people can pro-
ceed with it they must give it some close and searching
analysis. The aim of this analysis is not merely to discover
and discard those elements which are irrelevant or unim-
portant, but more importantly, to shape the problem in
such fashion that the solution (when it appears) will be
directly applicable to the task of the consumers.

For example, the surveillance people have many possible
courses of subsequent observation open to them by their
discovery of Great Frusina’s new missionary zeal. They
can begin watching the church-state relationship looking
for new angles; they can start an observation of the Great
Frusina-Belgium relationship; they can skip over Great
Frusina, Belgium, and the Congo, and start chasing after
developments in the general field of missions to find new
church policies therein. They are almost certain to turn
up interesting leads no matter which of these, or other,
lines they pursue. But that is not the question. The ques-
tion is, what particular line of further observation is likely
to prove of most importance to the security of the United
States?

The research people who come back from the policy-on-
China meeting may have much the same sort of choice to
make. They were asked to come up with some population
data; let us suppose that the original request was not more
explicit than just that. Obviously there are dozens of kinds
of population data only one or two of which will have any
bearing whatsoever on the task of the policy people. What
are these data, and in what degree of detail should they be
worked up?

As the surveillance and the research people mull over

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their substantive problems to find the most fruitful line of
attack they will seek guidance. This guidance should come
both from their own inner selves as they increase their
understanding of their respective substantive problems
and from the policy, planning, or operating people whom
they are endeavoring to serve. Let me take the problem of
guidance as it, appears to the surveillance man.

He discovered that Great Frusina was enlarging its
Christian missions program in the Congo; he knows that
the Congo has large uranium deposits; he asks himself, is
there a connection? When his foray into research reveals
that Brother Nepomuk won a Nobel prize for work in
geology he sees a connection and one aspect of the most
fruitful line of attack has presented itself to him. He now
has a hypothesis that Great Frusina is trying to get ura-
nium from the Congo and that Brother Nepomuk is a
Great Frusinan agent. At this point he must get outside
guidance. What other lines of attack will the people whom
he serves designate as fruitful, what do they propose to do
about Great Frusina if such and such a line indicates an
ill-intentioned activity on her part?

With the research people at work on the population of
China the sequence may be exactly reversed. In their quest
for direction they will promptly go back to the policy and
ask their advice about lines of attack. They will also ask
how the policy people see their task shaping up, and what
their aim is in revising the old policy. If they get answers
to their questions they can state the substantive problem
in such a way that an answer to it will have practical
utility to their principals. Moreover, as they advance into
their research they will get useful hypotheses which spring
from their familiarity with the subject matter, and which
the policy people might never have got on their own.

But the methodological problem at issue is not that of
inner guidance. It is that of guidance from without, guid-
ance from the users of the knowledge which the intelli-

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gencc people are trying to produce. It is one of the critical
problems of the whole intelligence business and one to
which I have devoted a substantial part of the next chap-
ter. Suffice it to say here that the relationship between in-
telligence producers and intelligence consumers has been
uneven; that intelligence often finds it impossible to get
the sort of guidance which it must have to make its product
useful; and that one of the places where this lack of guid-
ance produces its most disastrous results is at this very
stage 2 of the intelligence process. Unless the intelligence
organization knows why it is at work, what use its product
is to be designed to serve, and what sorts of action are con-
templated with what sorts of implements, the analysis and
proper formulation of the substantive problem suffer in
proportion.

3. Stage Three, the collection of data

The collection of data is the most characteristic activity
of the entire intelligence business. There can be no sur-
veillance without the collection of data nor can there be
research. Accordingly, an intelligence organization cannot
exist until it does a broad and systematic job of collecting.
But in this very task lie methodological problems which
are so tough as to be almost unsolvable and in their un-
solved state are a perpetual source of inefficiency.

a. Let me start with the easiest. This is the method-
ological problem which a member of the professional
staff encounters when he embarks upon a piece of research.
After he has blocked out his substantive problem, his next
step is to see what data bearing upon the subject exist in
his own and other intelligence organizations. Let us as-
sume that his own files are in good shape and that his
outfit has a centralized library of properly indexed docu-
ments. In a short time he can round up the materials
which are in his own possession, so to speak. These mate-
rials indicate, as will also his horse sense, that there are

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other kindred materials in other neighboring intelligence
organizations close by. He must reach these. I have al-
ready noted the difficulties in the task of reaching them if
(1) he must communicate his wishes to another person in
his own organization who has an exclusive mandate to col-
lect data, and (2) if the other organizations possess no
central library of indexed documents. The fact that in-
telligence organizations are likely to attempt to centralize
the collecting function and are not likely to maintain a
central index of their documents thus raises a consider-
able barrier to our researcher.

b. To proceed to a later step in this process, let us
assume that the staff member discovers that even after
canvassing every resource in his headquarters city there
are still a number of unanswered substantive questions
which he must explore. He must communicate with the
field; he must try to explain to someone in a foreign capi-
tal what he wants to find out. Now if the man on the other
end of the wire has formerly been a worker in the home
office, if he has a feel for home-office functioning and per-
sonally knows the home staff, and if he is on his toes, he
will the more readily understand what he is being asked
to do and will do it with efficient good grace. He will
grasp the instructions (which can be given in office short-
hand) and will act pretty much as an overseas projection
of the home staff. But if he has not served in the home
office, and instead has gone to his foreign post improperly
briefed on home problems then there may be difficulties.

The trouble begins with trying to explain in a letter or
cable precisely what is desired, and in trying to explain it
to someone starting from scratch. Requisitions for data of
this sort must be spelled out in detail and to achieve re-
sults they must communicate in their substance a sense of
urgency and importance. They are time-consuming. If
they are no more than short blunt commands they are
likely to be handled in a perfunctory fashion.

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The trouble increases when the requisition deals with a
subject to which the recipient is stranger. The home office
may wish to have a foreign official interviewed on a tech-
nical demographic matter or wish to have someone audit
and report on a scientific congress, but the men in the
field may have had the wrong kind of professional training
or no professional training at all, and thus be totally in-
competent to handle the subject matter of the request. Or,
most likely, the field staff is completely engulfed in making
good on a previous request which seems to them to be of
highest importance.

The above type of problem I have called the easiest of
the problems of collection, because certain simple rules
of good sense can probably beat it. But there are others
which cannot be so easily disposed of. They are inherent
in the surveillance phase of intelligence.

The surveillance force in a strategic intelligence opera-
tion is supposed in the first instance to watch actual,
fancied, or potential ill-wishers or enemies of the United
States and report on their activities. In the second instance
the surveillance force is supposed to procure a less dra-
matic sort of information which is calculated to forward
the success of our own policies. In certain aspects of both
lines of work the surveillance force must work clandes
tinely. Or to put it another way: a surveillance force
which was not equipped to work clandestinely could not
deliver on a small but extremely important part of its task.
Generally speaking, it could hot deliver information which
another country regarded as a secret of state. Many such
secrets can be apprehended only by fancy methods which
are themselves secrets of state. Thus a certain important
fraction of the knowledge which intelligence must produce
is collected through highly developed secret techniques.
Herein begins perhaps the major methodological problem
of the collection stage of the intelligence process.

It begins with the segregation of the clandestine force.

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This segregation is dictated by the need for secrecy. An
absolute minimum of people must know anything about
the operation, and the greatest amount of caution and dis-
simulation must attend its every move. But unless this
clandestine force watches sharply it can become its own
worst enemy. For if it allows the mechanisms of security
to cut it off from some of the most significant lines of guid-
ance, it destroys its own reason for existence. This guid-
ance, in the nature of things, should come from two
sources: it should come from the ultimate consumers di-
rect, or it should come from the ultimate consumer indi-
rectly, through the overt part of the intelligence operation
to which he (the consumer) has gone for help. As the
relationship between the clandestine people and the direct
and indirect consumers of their product is stopped down
(as it may have to be for long periods); as it becomes for-
malized to the point where communication is by the writ-
ten word only; as it loses the informality of man-to-man
discussion, some of its most important tasks become prac-
tically impossible. Requisitions upon it for information
become soulless commands which, through the innocence
of the consumer, can take no notice of the capabilities of
the organization. The consumer may ask for something
the organization is not set up to deliver, or he may ask for
so wide a range of information that the totality of resources
of the organization would be fully deployed for months,
or he may ask for something which though procurable is
not worth the effort. With a high wall of impenetrable
secrecy the consumer has great difficulty in not abusing the
organization, and the organization has an equal difficulty
in shaping itself along lines of greatest utility for the con-
sumer. It is constantly in danger of collecting the wrong
information and not collecting the right.

This danger is intensified by the very way clandestine
intelligence works. Its job involves it in highly compli-
cated techniques: the correct approach to a source, the

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"development” of source, 2 the protection of the source
once it has been developed, the security and reliability of
its own communications, and so on. Isolated by the se-
curity barrier, the perfecting of these techniques sometimes
threatens to become an end in itself. One can understand
the technician’s absorbed interest in the tricks of his trade,
but it is hard to pardon him when he gets his means and
ends confused. There are cases on record where clandes-
tine intelligence has exploited a difficult and less remu-
nerative source while it has neglected to exploit an easy
and more remunerative one. This kind of mis-collection
would be far less likely to occur if the operation were not
free to steer its own course behind the fog of its own
security regulations.

4. Stage Four , the evaluation of data

If the language of intelligence were more precise it
might use the word "criticism” in place of the word "eval-
uation,” and if "criticism of data” were permitted we
might move forward with a little more certainty and speed.
The word criticism means the comparison of something
new and unestablished with something older and better
established. How does the new measure up to the old?
The best critic, in these terms, is the man who has the
greatest number of somethings on the established side of
his ledger and the right sort of mind, for he will be able
by direct or indirect comparison to appraise the validity of
the new somethings as they come in. When he appraises
in the direct method, viz., when he rejects a report which
puts Great Frusina’s steel capacity at 45 million tons be-

9 For the meaning of the word “development" used in this sense sec
Richard Hirsch, The Soviet Spies (New York, 1947), esp. chap. 16. The
people whom the Russians in Ottawa induced to betray their country did
not betray it for money. They betrayed it because, through a subtle and
persistent indoctrination, they became sure that in so doing they were
benefiting humanity. There are many other ways of “developing” a
source without the blunt use of the ash reward.

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cause he knows from other evidence of unquestionable
reliability that her capacity is 36 million tons, he may be
said to have truthful information. When he appraises in
the indirect method, viz., when he rejects a report which
puts Great Frusina’s harvester output at 30,000 per year
because he cannot see what she could do with such a num-
ber, he is exercising what he hopes is good judgment.

In the research aspect of the intelligence business the
collected data bearing on the substantive problem must of
course be criticized before they can become the stuff from
which a hypothesis emerges. If incorrect data are not
rejected the emergent hypothesis will be accordingly incor-
rect, and the whole final picture incorrect. The methodo-
logical problem at issue boils down to a question of the
expertise of the critic, the breadth of his understanding,
and the freedom he is permitted in arriving at his ap-
praisal of the data. Maybe, as in the case of an earlier
problem, this one is as much a problem of administration
as of methodology. But the point is, that the intelligence
business in trying to run itself on an assembly-line basis
and in trying to substitute administrative techniques for
high-class professional personnel is all too likely to fall
down on the all-important issue of the criticism of data.
This is just another way of saying that we have lost too
many scholars of knowledge and wisdom from a pursuit
which cannot get along without them.

There is, however, a problem in the area of evaluation
which can properly be called a methodological problem
and one which is peculiar to the intelligence business.
This problem arises because of the two ways in which the
produce of the surveillance operation is distributed to the
consumers. The first of these ways of distribution is
through the finished digest or report or daily or weekly
summary. The new stuff is put on the expert’s desk; he
criticizes it, judges its importance, mixes it with other
data he received yesterday and the week before, gives it

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background and point, and sends it on to the consumer.
This activity may be called ‘■reporting," but as can be seen
it contains all of the elements of research.

The second way in which the produce of the surveillance
operation is distributed is in a much less finished form.
The collectors pass to a sort of middleman what they have
picked up. The middleman grades the data for reliability
of source and accuracy and reliability of content, and may
then distribute direct to the consumer or to the research
staff of his own organization and to other intelligence or-
ganizations. The only ostensible reason for the existence
of this middleman is that he is handling data which have
been collected clandestinely. His organization must pro-
tect its sources. But the middleman— no matter how he
came into existence— in actual fact does far more than
obliterate the source’s identity. He attempts to grade the
reliability of the data. In doing so he is guided by some
strange patterns of thought.

The middleman, according to standard practice, is re-
stricted to a very narrow language in making his evalua-
tions. He is permitted to grade the reliability of the source
according to the letters A, B, C, D, and the content accord-
ing to the numbers 1, 2, 3, 4. Thus A-l would designate
a report of unvarnished truth that was straight from the
horse’s mouth. Data from less dependable sources, and
less accurate, might be B-2, C-4 etc. If the data happen to
have come from a document, a newspaper or press release,
or some such, one school of evaluators simply designates
their value with the single word '‘documentary." Middle-
men have insisted on not amplifying their comments be-
yond this elementary code and have done their best to see
that others who might well be able to amplify were pro-
hibited from doing so. They cling to this procedure on
the ground that they are purveyers of a raw commodity
and that it is their duty to distribute the commodity in the
rawest state possible.

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If this argument has any force the middlemen themselves
do much to negate it. For they do not distribute the com-
modity in anything even approaching the raw state. They
edit it v abbreviate it, translate it, and obscure its source if
necessary. Worse, they frequently lose the point-of-obser-
vation— you might call it the slant of the information:
Was it a French Communist, Socialist, or Rightist source
which told the number of machine guns on the headquar-
ters of the communist newspaper, L’Humanitdj or which
told of the new political instructions from the Vatican?
When it lands on the consumer's desk, it is a semi-finished
good.

Evaluation of the source may be a valid and valuable
service of the middleman. If the source is known to be a
good one and if it must be protected at all costs, to label it
as grade A is helpful. But it is helpful and valid only in so
far as the middleman knows what he is talking about, or
in so far as the validity of the source has any bearing on
the content. Often middlemen have no independent line
on die reliability of the source, and instead of admitting as
much will proceed to grade the source on the apparent
reliability of the content. This movement in vicious circles
is neither helpful nor valid.

Aside from the value of an authoritative evaluation of
the source, there are within this procedure so many ques-
tionable elements that one scarcely knows where to begin.
Actually one would not feel obliged to begin at all if these
middlemen did not broadcast their product among people
who are ultimate intelligence consumers and who tend to
use the data without further and systematic criticism. But
evaluated data do reach this group of consumers, and they
are likely to accept the evaluation at face, and be accord-
ingly misled. 3

1 Not to be forgotten is an equal peril. The busy consumer may not
have time or inclination to read material put out in this form— in which
case he remains innocent of the good along with the had.

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The first peculiar element consists of the middlemen
themselves. Who are these people who ixeither themselves
direct the clandestine operations nor sit in a place where
they are forced to view all incoming materials? By all in-
coming materials I mean those collected overtly from open
sources (newspapers, government reports, transcriptions
of foreign radio broadcasts, etc.) as well as those collected
clandestinely from other secret sources. Located where
they are, the middlemen seem to be insulated from both
the field experience of the operator and the desk experi-
ence of the research man who constantly and aggressively
works at a specialty. I can understand how a man living
in Rome and spending all his time collecting information
on Italian politics can develop a high critical sense. I can
understand how a research man in Washington who im-
merses himself in the data of his specialty and every mo-
ment of his professional life runs an obstacle race with his
own and other people’s hypotheses must have a high criti-
cal sense and a lot of critical ability. But I cannot under-
stand how a man who passively reviews a wide range of
material without doing anything about it except grade it,
can have the necessary critical sense.

Another peculiar element of the evaluation business is
closely akin to the last one. It is to be found in the implied
assumption that the data of the social sciences have single
non-relative values— that the datum, "Mr. Truman will
try for the Democratic nomination in 1948,” is iji the same
class with the datum, "All physical objects will fall sixteen
feet in a perfect vacuum during the first second of their
fall”— that if Mr. Hannegan gives the first datum it is the
same thing as Dr. Millikan giving the second.

To illustrate further: During the war a document
graded as A- 3 was circulated which told of the American
failure to take care of the inhabitants of the city of Oran,
Algeria, in the winter of 1943. The source was given an A
rating because it appeared to be someone familiar with the

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situation; the content was graded as unreliable because the
evaluator knew conditions in Oran were not as bad as
represented. One recipient of this document who was well
equipped for systematic criticism poked around until he
identified the source as none other than an important
French official and the document as the text of one of his
off-the-record speeches. Now the official was unquestion-
ably an A source on the matter, he should know from
first-hand informants or even his own experience exactly
what the situation was. But what he said about Oran
under the Americans was of relatively little importance
even if it had happened to be correct. The important
aspect of this document was that violent adverse criticism
of the Americans had come from an important man who
was allegedly their frieild and close ally. Its importance as
a source on Oran was as nothing compared to its impor-
tance as a source on the ill-will, bad nature, or even mild
perfidy of the official himself. One use of the document,
in fact its real value, was completely obscured by the en-
coded evaluation. To serve the more important use, the
evaluation should have called attention to the authorship
of the document. If the document had fallen into the
hands of American intelligence through the work of a
secret agent whose indentity had to be protected, the eval-
uation would have required four or five sentences instead
of one. But suppose that these sentences could not be
written without compromising the agent, is this adequate
reason for misleading the consumer through the A-3 evalu-
ation? I would say not. I would say that if the middlemen
could not think up some other method of handling the
problem they should get out of the business.

The crowning peculiarity is the evaluation of a news-
paper clipping by the use of the word documentary. What
purpose this can serve has always eluded me. Further-
more, removing the name of the newspaper from the re-
production of the clipping is a positive disfavor to the

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recipient. Without ft he is himse/f tfepr/verf o/ perhaps
the most useful piece of information in mailing 1 his own
evaluation. For example, would you not like to know
whether the New York Times or the Daily Worker was
responsible for an estimate that Henry Wallace would
poll ten million votes for President in 1948? Or would
you settle for the attribution "documentary”? 4

5. Stage Five , the moment of hypothesis

What is desired in the way of hypotheses, whenever they
may occur, is quantity and quality. What is desired is a
large number of possible interpretations of the data, a
large number of inferences, or concepts, which are broadly
based and productive of still other concepts.

There are two things an intelligence organization must
have in order to generate more and better hypotheses: (1)
professional staff of highest competence and devotion to
the task, and (2) access to all relevant data.

There were many men who lived contemporaneously
with Mahan and Mitchell, with Darwin and Freud, with
Keynes and Pareto who could have made these men's dis-
coveries, but who did not have the necessary training or
quality of mind. But that these many others did not an-
ticipate the great was not because they could not have had
the necessary facts. To a very large extent the facts were
there for anyone. The great discoveries of the race are the
result of rigorous, agile, and profound thinking; the great
discoverers have brains capable of such thinking and the
stamina to face up to an intellectual responsibility. Great
discoveries are not made by a lot of second-rate minds, no
matter how they may be juxtaposed organizationally.
Twenty men with a mental rating of 5 put together in one

1 The official apology for this practice is that news items may be
planted misinformation and that the evaluator does not wish to
further the conspiracy. He thus uses the word “documentary" as a warn-
ing flag and as evidence that he is strictly neutral as far as interpretation
goes. I am not impressed by this reasoning.

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VtcmAAGWCS. \S KCTWIT \

room will not produce the ideas of one man with a mental
rating of 100. You cannot add minds as if they were so
many fractional parts of genius. So long as the intelligence
business behaves as if it could do this, it will not produce
the sort of hypotheses essential to its mission.

But the intelligence business which recruited its profes-
sional staff from among the nation’s most gifted people
would not produce the good hypotheses unless these
people had access to all the relevant data. This is by no
means easy to arrange. Two things get in the way and the
first of these is security.

Even though most of the subject matter of strategic in-
telligence falls in the field of the social sciences, it does not
follow that the intelligence man has exactly the same prob-
lems as the university researcher or the journalist. He is
dealing with state secrets upon which the safety or well-
being of a nation may rest. On the theory that the degree
of secrecy of a secret is a function of the number of people
who know about it, a highly important secret cannot be
too widely known. But a man cannot produce the good
hypothesis in the matter of an important secret if he does
not know as much as there is to know about it. It is inter-
esting to speculate on how far Lord Keynes would have
got if libraries withheld large blocks of economic data on
the ground that they were operational, or how far Dr.
Freud might have progressed if mental clinics sealed their
records against him on the ground that they were too con-
fidential. Yet intelligence people are constantly confronted
with this very sort of argument. Security comes at a great
cost in terms of results, and it should be allowed to inter-
fere only so far as absolutely necessary. It must not be
permitted as a cloak for inter-office and inter-departmental
jealousies.

This matter of jealousies is the second of the two things
that get in the way. I deal with it also at length in the next
chapter. Here let me but say that, whatever the cause, one

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of the results is to withhold from intelligence one of the
two prime ingredients of good hypotheses.

6. Last Stage j presentation

I am skipping the next-to-last stage (i.e. more collecting
and more testing of hypotheses) in the intelligence process
because it contains few, if any, problems not covered in
stages 2 and 3. The last stage, the stage in which the estab-
lished hypothesis is presented as a new and better approxi-
mation to truth, contains within it at least two important
problems. These emerge from the form which the finished
product must take. The most conspicuous aspects of this
form is unadorned brevity and clarity.

To be sure, intelligence does produce long reports—
some reach many hundred pages in length— but there are
few studies or reports or monographs which do not also
furnish the reader with the one- or two-page summary. In
a way this is as it should be. The imposition of a word
limit forces the intelligence producers to be clear in their
thought and concise in their presentation, and it enables
the hurried consumer to consume while he runs. But the
result, while necessary, is by no means an unalloyed good.
There is such a thing as a complicated idea; there is such
a thing as so complicated an idea that it cannot be ex
pounded in 250 words, or in two pie-charts, an assemblage
of little men, little engines, and three-quarters of a little
cotton bale. The consumer who insists that no idea is too
complicated for the 300-word summary is doing himself no
favor. He is requiring the impossible and is paying heavily
for it. He is paying in two ways: he is kidding himself in
his belief that he really knows something, and he is con-
tributing to the demoralization of his intelligence outfit.
The intelligence people who spend weeks of back-break-
ing work on a substantive problem and come up with an
answer whose meaning lies in its refinements are injured
at the distortion that may occur in a glib summary from

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which all real meaning has been squeezed. Next time they
go at such a problem they will have less enthusiasm for
exhaustive work, will turn in a poorer study with a still
poorer summary tacked on the front. This is not a plea
to the harassed consumer or man of action to read all the
hundreds of pages of knowledge which come his way, but
it is a plea for him to realize that there is a middle position
and that as he lets it be known he will read nothing longer
than one single-spaced page, a good many of his most loyal
and hardest workers are going to lose some of their fervor
in serving him.

A second problem of the presentation stage is the prob-
lem of footnote references. Intelligence consumers, unlike
most serious and critical readers, have not demanded foot-
notes, in fact, they have often contemned footnoting as
another evidence of the impracticality of the academic intel-
ligence producer. The producer himself has his difficulties
with the citation of sources. In those intelligence organiza-
tions where the rules of styling are made by men who do
not understand the method of research there is the usual
amount of lay opposition to the reference note. Again,
even in organizations where the value of citing sources is
fully understood, many sources must be concealed for the
reason of security. Thus on both sides there are good and
bad reasons for skimping on citations and citations are
skimped . 5

I know of no formula for evil that is any surer than
sloppy research unfootnoted. Sloppy and footnoted is not
good, but sloppy and unfootnoted multiplies the danger in

B Some organizations have developed a practice of citing as many open
sources as the text requires and of citing secret or delicate sources in a
code system. The consumer in these circumstances gets a. better break
even though some of the citations make no sense to him. If he must know
the source for a given statement, he is always free to ask the producer for
enlightenment. The producer, however, would seem to be the chief bene-
ficiary. He has his record before him against the time when someone may
challenge one of his statements, or he may have to revise or extend his
study.

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a way that the layman can hardly imagine. The following
example is a case in point.

The military staffs of two countries, X and Y, had some
pre-war conversations about the airfields which Y had in
one of its colonies. Y told X that it had some airfields
built, some about to be built on land already purchased,
and a third group to be built when the land had been
purchased. The outbreak of war turned the content of
these conversations into an important item of intelligence,
and one of Country X’s intelligence outfits distributed a
report which accurately named and located the fields and
noted that some were ready, others not yet built, and
others only planned. It cited its source and gave the dates
of the conversations. So far so good.

A few months later another intelligence outfit in another
country, Z, had occasion to get out a report on the colony.
The report had a section on airfields. The information
which it contained came from the earlier study, but it
was changed in two respects: the matter of the land for
those airfields whose land had not yet been bought was
glossed over, and the citation of source was omitted. We
now have an unfootnoted report on airfields in operation
and another group soon to be completed.

A little later a second intelligence outfit of Country Z
took the second report and entered the airfield data on
cards. These cards were printed forms which had no ap-
propriate box for noting that an airfield was in operation
or in the process of construction. The cards carried no
footnote references. All three categories of airfield thus
dropped into category one. Taking information from the
cards you would have thought that the area in question
had fifty some more airfields than it in fact possessed.

It wap about this time that a third intelligence outfit of
Country Z came into being and inherited the card file of
the second. It developed a technique of presenting airfield
data on maps with symbols to indicate length and type of

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runway. Now back in the original document no length
was given for the nonexistent runways of the fields to be,
but it was noted that the areas to be purchased for airfield
development were to be one mile square. This datum had
been repeated in all the succeeding reports. But when the
map-makers landed upon it they found it inconvenient.
They did not wish to do the unrealistic thing of depicting
a square runway one mile by one mile, so they compro-
mised. They reasoned that the runways would be of maxi-
mum length, hence must follow the diagonal, and hence be
something over a mile, say 7,000 feet, in length. This
point decided, they made their maps and assigned a symbol
indicating a 7,000 to 8,000 foot runway to the fields. As a
matter of fact, later demonstrated, only one or two of the
fifty-odd fields were ever completed.

This sort of error is by no means entirely ascribable to
the lack of a footnote, but I would say that the lack of the
footnote considerably enhanced its chances of occurring.
Furthermore, the lack of the footnote made the correction
of the original error more and more difficult as the data
went through the producer-consumer-producer-consumer
chain. By the time the map was made the discovery of the
error demanded hours of the time of the most studious and
professionally competent man who happened to have the
hours to spend. And even so the damage was irreparable,
for his more correct and cautious appraisal of the airfield
situation in Y’s colony could not possibly expect to reach
all the consumers of the erroneous reports, or convince all
those whom it did reach that his was the truer picture.

The methodological problems which I have discussed
above would appear to be the most vexing ones. But my
catalogue is not exhaustive. There are other problems and
there are other facets to the ones already considered.
Taken together they make the calling of intelligence a
difficult one, and cause the results of the intelligence proc-
ess often to fall below necessary standards of quality.

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CHAPTER 11

PRODUCERS AND CONSUMERS OF
INTELLIGENCE

T here is no phase of the intelligence business which is
more important than the proper relationship between
intelligence itself and the people who use its product.
Oddly enough, this relationship, which one would expect
to establish itself automatically, does not do this. It is
established as a result of a great deal of persistent conscious
effort, and is likely to disappear when the effort is relaxed.

Proper relationship between intelligence producers and
consumers is one of utmost delicacy. Intelligence must be
close enough to policy, plans, and operations to have the
greatest amount of guidance, and must not be so close that
it loses its objectivity and integrity of judgment. To spell
out the meaning of the last sentence is the task of the next
pages.

The Problem of Guidance

One of the main propositions of this book may be sum-
marized as follows: Unless the kind of knowledge here
under discussion is complete, accurate, and timely, and
unless it is applicable to a problem which is up or coming
up, it is useless. In this proposition is recognized the fact
that intelligence is not knowledge for knowledge's sake
alone, but that intelligence is knowledge for the practical
matter of taking action. Fulfillment of this function re-
quires that the intelligence staff know a great deal about
the issue which is under discussion in the other units of,
say, the department charged with policy, plans, and opera-
tions, and that it have the largest amount of guidance and
cooperation from them which can be afforded. The need
for guidance is evident, for if the intelligence staff is sealed

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off from the world in which action is planned and carried
out the knowledge which it produces will not fill the bill.

Let me be precise about the meaning of the word
guidance. To be properly guided in a given task intelli-
gence one must know almost all about it. If you wanted to
find out from a road contractor how big a job it was to
build a particular piece of road, you would not go to him
and ask: "How hard is it to make a road?" Before you
could expect any sort of meaningful answer you would
have to stipulate what two points the road was to connect,
what volume of traffic you wished to run over it, the axle
loading of your heaviest vehicle, and so on. After you had
made your specifications clear you still would have to wait
for the final answer. The contractor might give a very
rough estimate but refuse to commit himself until he had
investigated the nature of the terrain to be traversed, the
weather he would have to contend with while putting in
the road, the local labor force, etc. When he had made
these investigations he might come up with a figure for a
road answering all the preliminary specifications but which
was prohibitively high in cost. At this point he must
return to you to begin conversations on compromises. Will
you accept two lanes instead of three or four? Will you
accept a more circuitous route with fewer cuts, fills, and
difficult grades? Will you accept a less expensive surface?
As you talk these matters over with him you find yourself,
although you are not a professional road-builder, batting
up suggestions as to how he can avoid this or that techni-
cal difficulty, and he, though no professional transportation
man, begins asking you questions about your own prob-
lems. If things go well, you fetch your technical people in
to the discussion, and he does also. Before you are done,
your organization and his have got together straight across
the board and a community of interest and understanding
is developed that produces a workable plan and a smooth
operation. You have naturally and unconsciously afforded

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him the guidance which was mandatory for his (and your)
success.

Now this same sort of guidance is essential in the stra-
tegic intelligence business. Intelligence is not the formula-
tor of objectives; it is not the drafter of policy; it is not the
maker of plans; it is not the carrier out of operations. In-
telligence is ancillary to these; to use the dreadful cliche,
it performs a service function. Its job is to see that the
doers are generally well-informed; its job is to stand be-
hind them with the book opened at the right page, to call
their attention to the stubborn fact they may be neglect-
ing, and— at their request— to analyze alternative courses
without indicating choice. Intelligence cannot serve if it
does not know the doers’ minds; it cannot serve if it has
not their confidence; it cannot serve unless it can have the
kind of guidance any professional man must have from his
client. The uninitiated will be surprised to hear that the
element of guidance which is present in the full at the
lowest operational levels becomes rarer and rarer as
the job of intelligence mounts in augustness . 1

Without proper guidance and the confidence which goes
with it, intelligence cannot produce the appropriate kind
of knowledge. Its surveillance operation, while relatively
certain to keep its eye on the obvious foreign problem
areas, may well neglect the less obvious though significant
ones. There will be a playing of hunches: "Watch Bo-
livia, they’ll be screaming for information on it in a
month"; "Isn’t it about time we began watching for unrest
in Madagascar or Soviet activities in India"; "Say, how
about the Spanish underground, how about West African
nationalism?" There will be plain and fancy guesswork on

x To see the intelligence -opera Lions relationship at its«best and most
effective, one must clamber far down the administrative or command
ladder. There, in the smallest units, the intelligence and the operations
officer often exchange jobs — sometimes there is only one man for both
jobs. In these circumstance there is no problem of guidance, and intelli-
gence an be counted upon to do its job with a minimum of waste effort.

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what is to be watched and what can be left to cool off.
There will be differences of opinion as to what is and what
is not important, and differences of opinion on where this,
that, and the other matter belongs on the priority list.
And whereas this striving to anticipate the trouble spot is
not to be discouraged, it certainly should be supplemented
continuously by the very best advice that the doers and
intelligence consumers can offer.

The research aspect of intelligence suffers even more
than the surveillance when improperly guided. In the first
place the knowledge which it purveys may be inapplicable
to the use it is supposed to serve, incomplete, inaccurate,
and late. It is not reasonable to expect otherwise, for the
kind of task intelligence is often asked to do in, say, a
week’s time or a day’s time may be simply beyond human
competence. To be able to deliver in the fashion appar-
ently expected, and in the quality, would demand a re-
search staff large enough to codify and keep up to date
virtually the sum-total of universal knowledge. Even then
it is doubtful if the result would be what was required
unless intelligence had some advance warning of the next
job.

In the second place, the want of sharp and timely guid-
ance is chief contributor to the worst sickness which can
afflict intelligence. This is the sickness of irresponsibility.
Intelligence loses the desire to participate in the thing to
be accomplished; it loses the drive to make exactly the
right contribution to the united effort. It becomes satis-
fied with dishing up information without trying to find
out what lies behind the order for it, without trying to
make sense out of what appears senseless. When intelligent
and sensitive men reach this stage they are no longei either
intelligent or sensitive; they begin behaving as dumb and
unhappy automatons who worry, if at all, about the wrong
things. What they hand on in the way of knowledge is
strictly non-additive; it must be worked over by someone

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STRATEGIC INTELLIGENCE

else up the line, less well-informed than themselves, before
it has value for the enterprise. And furthermore what they
hand on is not only non-additive it may also be out of date
or inadequate because long ago they quit caring.

There are a number of reasons why intelligence pro-
ducers and consumers have difficulty in achieving the
proper relationship. The first of these is a formal one and
perhaps, on the surface at least, more typical of the armed
services than the civilian departments.

The services are organized in the well-known staff pat-
tern. At the highest level in the old War Department, for
example, the Chief of Staff had under him a Deputy Chief
of Staff, the General Staff, and the Special Staff. The Gen-
eral Staff still is composed of six divisions, each under the
direction of a general officer. These are respectively
responsible for matters concerning personnel, intelligence ,
organization and training, service-supply-procurement,
plans and operations, and research and development. With
modifications this pattern is easily recognizable in the top
level of the other services, and typical of all services (again
with modifications) in the descending order of their forma-
tions. For example, the commanding officer of an infantry
division, a wing of combat aircraft, or a battleship would
have a staff consisting of half a dozen officers, each of
whom was entrusted with functions more or less accurately
paralleling those of the Directors of the General Staff . 2

The main job of all staffs is to keep the commander in-
formed and assist him in making the "sound military deci-
sion.” Each staff officer who is the specialist in his own
particular function has the primary duty of contributing
to his commander's understanding in that field, and a
secondary duty to his fellow staff members. It is to be
expected that the loyalties, as they jell in any human insti-

A It goes without saying that the reaearch-and-development function is
not usually represented at this level.

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tution, will jell first and foremost along the vertical ad-
ministrative line. That is, the people under the Director
of Plans and Operations, say, will feel most loyalty to those
who work next to them in the same small administrative
unit and next most loyalty to the whole echelon of which
they are a part, next most loyalty to the next echelon up,
and so on to the Director himself. Until the loyalties of
the people in the whole organization of Plans and Opera-
tions have traversed this vertical line, they will usually not
spread out within the organization, and not until they
have spread out within the organization will they start
spreading over to other similar organizations (Intelligence
or Personnel, for example) under the commander.

In these circumstances there is a%formal reason inherent
in staff structure why the Director of Intelligence might
have his difficulties in getting from the other directors the
kind of guidance on plans, projected operations, opera-
tional strength, etc., which he should have. The same rea-
son might explain why the lower echelons of the several
organizations find it hard to get together. But generalizing
along this line is dangerous. Perhaps the only generaliza-
tion which has validity is that rigorous staff structure in-
creases the inertia of any large organization, and what
seems to be true of the highest levels of the armed services
is equally true of any very large commercial or industrial
venture.

Some, basing their arguments upon a well-known phase
of armed service doctrine, have held that inflexible rela-
tions across the main administrative lines are inherently
more serious in the services than in big business. They
point to the doctrine which is buried deep in one of the
basic service formulae called "The Estimate of the Situa-
tion" 8 and assert that herein lies something which adds no

"This formula is designed primarily to fit an essentially military situa-
tion. Whereas the textbooks do not confine it to a tactical military situa-
tion there is a good bit more tactics involved than strategy. Furthe r m or e,

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small amount to the unsatisfactory relationship between
intelligence producers and consumers.

The estimate of the situation is what a military com-
mander must make before he decides upon a course of
action . 4 Very briefly, the steps in the estimate involve first
a knowledge of the environment in- which the course of
action is to be undertaken (terrain, hydrography, weather,
etc.— in a grand strategical situation these factors would in-
clude the overall nature of the polity, economy, and soci-
ety); secondly, a knowledge of the size, fighting strength,
and disposition of the enemy forces (in a grand strategical
situation this would amount to what I have termed stra-
tegic stature minus specific vulnerabilities); thirdly, a
similar knowledge of the commander's own forces. From
this knowledge the commander deduces the courses of ac-
tion open to the enemy, and courses of action open to him
which will accomplish, or further the accomplishment of,
his mission. After he equates the enemy capability and
possible courses of action against his own, he decides what
his own course of action should be.

In the process briefly described above, the commander,
of course has the services of his staff. Each of his staff offi-
cers has a clearly defined role in the procedure: personnel,
operations, and logistics tells him precisely about his own
force; intelligence tells him about the physical environ-
ment and the enemy force. The degree to which intelli-
gence is permitted knowledge of his own forces and the
courses of action which the commander may be mulling
over are matters not spelled out in the formula. Since all

the strategy at issue seems to be a fairly straight military strategy. Never-
theless, the formula is applicable to what 1 have called the grand strategy,
and top military men concerned with the grand strategy are not unlikely
to think in its terms.

■ Whether the commander actually prepara the atimatc, or whether
his chief of staff does, or whether his operations officer doa, is likely to
vary from circumstance to circumstance. Seldom if ever would the intelli-
gence officer do it. In combat conditions the chief of staff or operations
officer is the most likely candidate.

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INTELLIGENCE IS ACTIVITY

discussions of the estimate formula deal primarily with the
responsibilities of the commander, the precise nature of
what the intelligence officer should know and should not
know about his commander’s own forces is not specifically
considered therein. Nor does it appear that formal study
has been given the matter in other official service litera-
ture. It is perhaps unnecessary to say that a competent
commander in a tense strategic or tactical situation would
ordinarily desire to have his intelligence officer know
everything which would contribute to his, the command-
er’s, success. If he thought that an informed intelligence
officer added another wise head to the staff he would ordi-
narily see that the latter were informed no matter what
the doctrine might imply.

There is, however, one reason why the commander
might wish to deny his G-2 (i.e. his intelligence officer)
knowledge of his own forces. It can be, in fact it has been,
argued that the G-2 should approach his job of estimating
the enemy with complete objectivity, and that if he has
full knowledge of his own forces and how they may be
employed, his thought may jump ahead to the showdown
of strength. If his mind does jump ahead, he will see his
side about to win or lose, and his elation or fear will be
reflected in his estimate of the enemy. If he sees his side
the easy winner, the argument runs, he will tend to under-
rate the enemy; if the loser, to overrate the enemy. The
commander who is going to have enough difficulties con-
quering his own subjective self may not wish to complicate
the task by having to screen out that of his intelligence
officer to boot. In these circumstances it is said, the com-
mander may feel justified in keeping his intelligence arm
in ignorance of his own plans and operational strength.
But it seems to me that something is wrong with such a
commander. If he counts on achieving an objectivity for
himself it is hard to see why he should retain on his staff
someone else whom he does not believe capable of such

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STRATEGIC INTELLIGENCE

objectivity. This point aside, it would appear to me that
the doctrine at least allows the commander the option to
tell intelligence nothing.

Whether or not he takes up the option would seem to
depend upon the personal attributes of the commander,
the magnitude of his command, the tenseness of the
situation, and the need for air-tight security. One can con-
ceive a wide range of possibilities beginning with a small
unit action where the commander could not keep his intel-
ligence officer in ignorance even if he thought it a good
idea, and ending with the determination of a major stra-
tegic course of action at General Staff or Chief of Naval
Operations level where considerations of time or security
or something else might justify the commander in keep-
ing his intelligence officer in the dark. At this level, too,
the commander might tell everything to his G-2, but bind
him to secrecy with respect to his (the G-2's) staff for the
same reasons. It must be said, however, that no matter
how good these reasons may appear to the commander,
they can never seem so good nor so compelling to his
intelligence officer. 5 The latter will always be miffed at
the thought that his chief doubts his ability to overcome
his subjective self, or that his chief holds him and his
organization as a poor security risk. He will be a good
deal more than miffed at the realization that no matter
how hard he works, he will always run the risk of turning
out a useless product.

Those who argue that the doctrine in the estimate-of-
the-situation formula has within it the means of stultifying
a free give and take between intelligence producers and

■ The classic case of operational information withheld Erom intelligence
is that of the atomic bomb. For months after its use, national intelligence
at the highest level was expected to continue its speculative field (sec
Chapter 4) of work with little more knowledge of the bomb than the man
in the street. That an analysis of Great Frusina’s strategic stature should
be meaningful, when the analysis was computed without reference to her
specific vulnerability to the bomb, is something I have great difficulty in
accepting.

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INTELLIGENCE IS ACTIVITY

consumers have a point. I would be more impressed with
it if this doctrine were the only discernible cause, and if
civilian departments which have inherited no such doc-
trine did not also have their difficulties in the producer-
consumer relationship. There are other causes, and the
doctrineless civilian departments fall victim to them along
with the military.

The first of these may be called psychological. One of
the sure ways to alienate a co-worker is to question his
ability to add up a column of figures, take stock of a situa-
tion, or understand what he sees or reads. The vocabulary
of insult and abuse about mental capacity is on a par with
unsympathetic remarks about parenthood and ancestry,
may be even ahead of them in provoking anger. On the
theory that man’s intellect alone separates him from other
animals, perhaps this is understandable. Now, separating
out from all the various steps necessary to accomplish an
end, the thing called intelligence (intelligence in the con-
text of this book) and bestowing it upon one group of
men, to the formal exclusion of all others, is not to flatter
the excluded. Deep in their subconscious selves they may
well harbor the feeling that someone has told them they
are not quite bright— that someone has in effect said, "Now
don’t you worry, your thinking is being done for you.
We’ve arranged to relieve you of all thinking by giving
you an external brain. We call it Intelligence. Whenever
you want to know something, just go ask Intelligence." For
many a man the separate existence of an intelligence arm
must convey this sort of odious comparison.

If intelligence were staffed with supermen and geniuses
who promptly and invariably came up with the correct and
useful answer, the sting might wear off; intelligence might
come to be revered by its users as a superior brain. But
so long as intelligence is not so staffed, but in fact is staffed
by men who, in the armed services at least, themselves
often have small taste or special qualification for the work

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and do not intend to make it a life career, the relationship
between producers and consumers will continue a trou-
bled one.

A second cause for this state of affairs (and one which
upon unfortunate occasions is closely related to the first),
is what the language of intelligence would call the security
reason. "Security” in this context, of course, means the
secrecy with which certain affairs of state must be con-
ducted.

As long as timing and surprise are essential aspects of
policy and strategy there must be secrecy. A boxer who
telegraphs his punches, a quarterback who inadvertently
reveals the play, or a pitcher who cannot conceal the pitch
is likely not to be the winner. The grand strategist— mili-
tary or civilian— whose exact intentions and capabilities
are known by the party of the second part finds himself
without a strategy.

Policy makers and planners will, in the nature of things,
deal with secrets of state, the disclosure of which would
amount to a national calamity. (Although peacetime has
its examples of what I am talking about, wartime provides
those most readily understood: What if one month before
the Allied assault on Normandy or the American landing
at Leyte the enemy learned the exact time, place, and mag-
nitude of the projected attack?) Likewise must the intel-
ligence people have their secrets. A powerful intelligence
organization can develop sources of information of a value
utterly beyond price. They can be of such value that they
themselves become the points of departure and the guar-
antors of success for a policy, a plan, or an operation. The
revelation of such sources or even a hint of their identity
will cause their extinction and perhaps the failure of the
action based upon them. Their loss can be likened to the
loss of an army or all the dollars involved in the Marshall
Plan, or, upon occasions, the loss of the state itself.

The stakes being what they are, security and its formal

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rules are an absolute essential. The first rule of security
is to have the secret known by as few people as possible,
and those of established discretion who, at the same time,
must know the secret in order to do their share of the
common task. What is the effect of this rule in the intel-
ligence producer-consumer relationship?

When the rule is rigidly applied by the producers, the
consumers are entitled to a legitimate doubt as to the
validity of the producers 7 findings. Suppose you, as a plan-
ner, were told something which was contrary to all pre-
vious knowledge and belief and contrary to the laws of
common sense? Would you accept it blindly and stake a
policy or a plan upon it? What would be your emotions,
your considered judgment, and your final decision if, after
receiving such information, you went back to the producer
to ask for confirming details and got a "Sorry, but I can-
not say more than I put in the memorandum 77 ?

Likewise, when the consumers— the policy people and
planners— rigidly apply the rule, they give the intelligence
producers good cause for non-compliance; or the produc-
tion of useless knowledge. Suppose you were an in-
telligence producer and suppose one of your consumers
appeared with a request for everything you could find out
about Java. Suppose the request were phrased just this
way. Suppose your entire staff were occupied on other
high-priority jobs and that you could not put any of them
on his request without some justification on his part. Sup-
pose you told him this. It might be that he would feel he
could not give you the justification without a breach of
security. You are at cross-purposes. In some cases the con-
sumer would drop the matter there. But in others, he
would go back to his office, carry his request up through
two echelons of his own organization, and see that it came
down to you through two echelons of yours. You would
be given your orders to get to work on Java.

The chances are excellent that a request which comes

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through in this fashion is a request in which the security
issue is paramount. The consumer does not really want
to know all about Java; he wants to know merely about
some tiny fraction of it. But he dares not stipulate the
fraction for fear of revealing his intent. So he asks for all
of it, hoping to get his information out of one paragraph
or chapter of your encyclopedia. He has no guarantee that
this paragraph or chapter is not the very one you consider
unimportant and accordingly will leave out. Nor have you
any guarantee that if you write the paragraph or chapter
you will write it in the way that will serve his interests
best.

Now what I have said above is the extreme case. When
the issues are of highest importance both producers and
consumers go to all permissible lengths to help each other
forward the success of the common task. But this very
leaning over backwards merely confirms the existence of
the basic problem which security throws in the way of a
perfect relationship. Furthermore, when the substantive
issue is of some lower order of importance no one may
lean over backwards and something akin to the impasse I
have described can easily develop. 0

1 The security problem within a single military department occasions
some of the difficulties I have enumerated in my extreme case. But it oc-
casions worse ones in the relationship between the military and civilian
departments. For very good reason some, if not all, civilian departments
have poor reputations for safeguarding secrets of state. They have been
slack in their investigations of dubious personnel; they have talked when
silence was in order. They have been responsible for outrageous leaks. In
these circumstances, officers of the services who have been thoroughly in-
doctrinated in the necessities for security are understandably reluctant to
open their hearts to the civilians. Moreover, these officers, who face direct
and severe penalties if they themselves are responsible for a leak, fully
realize that no such penalties are imposable upon civilian employees.
Without an official secrets act such as the British have, a loose-talking
civilian or a man under the influence of a foreign power will in most
cases suffer no greater harm than dismissal from his job.

By the above I do not mean to imply that all people wearing the
uniform arc reliable and those in civvies not. I do mean to say that the
military's record for safeguarding secrets is better than the civilians, and
that this fact plus differences in applicable penalties aggravates the security
problem in the service-civilian relationship.

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What I am concerned with in these paragraphs is not to
play down the importance of security regulations and their
observance. I am concerned with the point that security
is like armor. You can pile on the armor until the man
inside is absolutely safe and absolutely useless. Both pro-
ducers and consumers of intelligence have their secret s,
and in safeguarding them they can so insulate themselves
that they are unable to serve their reasons for being. This
problem is so critical to intelligence that it deserves the
continuing study of a high-powered board. It cannot be
met by the earnest but informal and sporadic efforts which
are current today. Nor do I believe it would vanish with
the passage of an official secrets act. Such an act would
help enormously, but it would not be the all-powerful
panacea its proponents would have it. 7

A last reason for the misunderstandings between intel-
ligence producers and consumers is an understandable re-
luctance on the part of consumers to embark upon a
hazardous task on the basis of someone else’s say-so. After
all, if anyone is going to be hurt it probably will not be
the producers. I will warrant that the Light Brigade’s G-2
was high on the list of survivors in the charge at Balaclava.
So it will be in less dramatic instances. The casualties, in
both the literal and figurative senses, will be to the intel-
ligence users first, and to the producers late down the line.
In these circumstances it is easy for the users to adopt the
attitude expressed in the rhetorical question: "Why should

7 If such a law existed, it could do no more than provide penalties for
the unathorized disclosure of state secrets. Penalties have been deterrents
to crime, but no matter how severe, penalties have not obviated crime.
There will always be people to whom the penalty is a secondary consid-
eration. Some would choose to disclose state secrets of a given order of
importance even though the penalty were death. In these terms is it
reasonable to suppose that secrets of this order of importance can be any
more tightly held than at present? I would say that an official secrets act
would have little if any effect upon the intelligence producer-consumer
relationship where the substantive issue was one of top national im-
portance and hence highest secrecy.

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intelligence worry about doing a perfect job, after all it’s
not their neck?” From this there can emerge a feeling of
disrespect, perhaps even of derogation, for the word of
those who do not carry the weight of operational respon-
sibility. Let intelligence make any kind of mistake for
which there is a natural penalty, and the relations between
the two are likely to worsen.

One last word: intelligence is bound to make mistakes.
Some of the questions it is required to answer demand
a divine omniscience; others demand more painstaking
work than can be accomplished in the time allotment; still
others can be had only with the most elaborate sort of
undercover preparations which have never been made.
But let intelligence make a mistake or come up with an
inadequate answer and all too often the reaction of the
consumers is on the uncomprehending and bitter side:
”1 wouldn’t ask those geniuses to tell me how many pints
there were in a quart.” When intelligence errs there seems
to be less tolerance of its error than there is for the error
of other mistaken specialists. For example, when a dentist
pulls out the wrong tooth (as the best dentists have done)
or a lawyer loses a case, the client’s reaction is not that he,
himself could have done a better job, and that henceforth
he will do his own dental and legal work. Yet in intelli-
gence matters, pardonably wrong diagnosis and under-
standably inadequate presentation very often do arouse
just such a reaction in the client. For good reason or bad,
an intelligence failure seems to rankle out of proportion
to its importance, and to tend to justify the consumer in
doing his own intelligence henceforth.

Thus there are a number of reasons why the relation-
ship between producers and users may at times be extraor-
dinarily difficult with the result that the all-important
element of guidance is lost. Once this occurs, intelligence
must remain innocent of the consumers’ requirements, and

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the consumers innocent of intelligence’s capacity to con-
tribute to their problems. 8 In wartime the closer to the
fighting front and the smaller the operating unit, the bet-
ter the relationship and the keener the guidance; the more
remote from the fighting front and the larger the unit, the
worse the guidance. In peacetime there are few situations
comparable to the fighting front. Where they do exist they
do not possess that element of common physical peril
which makes all men of one side friends and brothers. In
peacetime top-level intelligence must function in the very
area where wartime relations were worst and where without
the leaven of what you might call front-line tolerance they
are likely to remain worst. One concludes that of the
two dangers— that of intelligence being too far from the
users and that of being too close— the greater danger is
the one of being too far. But what of the other?

The Problem of Objectivity and Integrity

The other danger— that of being too close to the con-
sumers— is, however, not to be readily dismissed. In a
moment of intense exasperation, intelligence producers
and consumers might agree that the administrative bar-
riers between them should be knocked down and that in-
telligence should be moved piecemeal into the policy
section or the plans section or operations section, or that
intelligence should be broken up into its regional and
functional units and dispersed among appropriate parts of
the total organization. If this were done, intelligence

"During the war there was a very interesting parallel in the relation-
ship between certain civilian scientists in enterprises under control of the
government, and the military men they were serving. As civilians the
scientists had few natural insights into the detailed requirements of the
military and spent no small amount of time trying to find these out. The
military, on the other hand, lacked a similar natural insight into the
capabilities of modem science. There was thus a wall between them
which had to be demolished before the scientists could get the right kind
of guidance, and before the military could gain the proper knowledge of
what they might ask the scientists to work on.

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would very likely acquire all the guidance it could possibly
ask for— perhaps even more than it could legitimately
stomach. There will be great and obvious advantages;
there will also be costs, some of them considerable. Let us
begin with the meanest.

Intelligence is likely to be diverted from its essential
task. I mean this in its most crude sense: the intelligence
personnel who are professionally studious and also pos-
sessed of some of the talents of the doer are going to find
themselves asked to share the non-intelligence burden of
the office. Personnel raids of this sort are very familiar to
intelligence people everywhere; practically everyone not in
intelligence has a way of fancying the best of intelligence
staff as a pool of unencumbered and elite manpower ready
to be tapped at will. Fighting off such raids is a well-
known necessity. In the context under discussion resist-
ance is likely to be useless and once the intelligence man
has crossed the line, into operations, say, he is going to
have greatest difficulty arranging his return to intelligence.
Generally speaking, once out of the intelligence phase of
the work he will be engulfed in the day-to-day business of
the new job. Soon the intelligence staff is whittled down
to its least valuable members, which is to say intelligence
has lost its identity and its functioning integrity. This very
thing has happened enough times to be worthy of serious
consideration.

Secondly, intelligence, if brought too close to its con-
sumers, is likely to be diverted in a slightly less crude
sense, but scarcely a less damaging one. For instance, the
detailed problems of an operating office can be many and
compelling. A great many of them require an “Ask Mr.
Foster” type of research. The tendency will be to put
intelligence staff on this kind of work. This is not to
argue the work’s unimportance, but it is to argue that
absorbing too much intelligence talent in it is to make
poor use of intelligence. Intelligence should have long

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stretches of uninterrupted time to carry out long-range
projects which can be done in no other circumstances.

Thirdly— and this would be true only where intelligence
was not only brought across the line administratively, but
also broken up and dispersed among appropriate planning
or operations sections— the substantive integrity can be
seriously injured. In an earlier chapter I indicated how
intelligence can handle surveillance and research problems
which cut across its regional or functional lines. Accord-
ing to this method a problem such as Spanish influence in
Argentina would become the charge of an ad hoc commit-
tee under the supervision of a project leader (either a
Spanish or Latin American expert) and under the ultimate
management of the staff I called the Control Staff. In such
a way one may be relatively sure that the totality of re-
sources which intelligence can turn to the problem are
turned to it. But when the intelligence organization has
been fractioned and spatially separated and put into closest
contact with the consumers, no such method need be fol-
lowed. Indeed it is easy to see how a Spanish unit chief
would call up one of his intelligence men, ask what he
could find out about Spanish doings in Argentina, and not
insist that he go to another building to talk with his Latin
American opposite number. It is not merely possible, it is
highly probable, that the multitude of problems of this
sort would be dealt with by people who are expert in only
one sector of the subject.

Nor is this, and the want of substantive give and take
which it implies, the only disadvantage. In addition there
is the matter of contrasting standards of performance as
a price of dispersal. An intelligence outfit, which is admin-
istratively separated from its consumers and unified within
itself, is able to strive for a uniformly excellent product.
The best work passing through Control will inevitably
become the scale against which other work is measured.
Destroy the centralization and the unity and you destroy

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the best and most natural method of establishing competi-
tion and of deriving good from it.

To all the foregoing, there may be devisable administra-
tive remedies. I doubt if the remedies will be wholly
effective, but they may be able to meet the worst objec-
tions. There is, however, one high-order disadvantage in
bringing the producers and consumers of intelligence too
close together which will elude the most ingenious of ad-
ministrative devices: this is the disadvantage of getting
intelligence too close to policy.

This does not necessarily mean officially-accepted high
United States policy, but something far less exalted. What
I am talking of is often expressed by the words ,, slant, ,,
“line/ 1 “position,” and "view.” Almost any man or group
of men confronted with the duty of getting something
planned or getting something done will sooner or later
hit upon what they consider a single most desirable course
of action. Usually it is sooner; sometimes, under duress,
it is a snap judgment off the top of the head. The way in
which such people arrive at this most desirable course of
action does not require them to examine all the facts
critically and dispassionately and to arrange them into a
logically sound and secure pattern. They may arrive at
their solution in ignorance of many relevant and impor-
tant facts, and with their prejudices and cliches of thought
discriminating in favor of the facts which they do use.
This kind of off-the-cuff solution tends to harden into what
I have termed policy— in the unexalted sense of the word.
Their "view” is thus and so; their “position,” therefore,
thus and so; their "line,” in support of the "view” and
"position” thus and so. Add the ingredients of time and
opposition and you have something which can be called
"policy” without doing too much violence to the lan-
guage. Even though this policy may be arrived at by rule
of thumb, hazard, or blind intuition, it does not follow
that it is invariably and necessarily wrong. Sometimes it

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is inspirationally perfect. But my point for the moment
is that unless the necessity for action is too pressing to
permit impartial analysis of all the available facts, prefer-
ably before “view” jells into “position,” but in any event
antecedent to action, this procedure is full of unnecessary
risks. If there is an intelligence staff on the periphery it
should be instructed to do the systematic analysis.

Now an intelligence staff which must strive for reasoned
and impartial analysis, if it is to strive for anything, has
its own difficulties with view, position, slant, and line. After
all, it is made up of men whose patterns of thought are
likely to color their hypotheses and whose colored hypoth-
eses are likely to make one conclusion more attractive than
the evidence warrants. The main difference between pro-
fessional scholars or intelligence officers on the one hand,
and all other people on the other hand, is that the former
are supposed to have had more training in the techniques
of guarding against their own intellectual frailties. Polic-
ing their inescapable irrationalities is a twenty-four-hours-
per-day task. Even so, they are by no means always
successful. The history of intelligence is full of battles be-
tween the pro-Mihailovitch and pro-Tito factions, between
the champions and opponents of aid to China, between
defenders and detractors of the Jewish national home in
Palestine. The fact that there have been such differences
of opinion among supposedly objective and impartial stu-
dents who have had access to substantially the same mate-
rial, is evidence of someone’s surrender to his external
pressures. These differences of opinion have appeared
among intelligence organizations which were administra-
tively separate from the people they were to serve.

If intelligence under the best of conditions finds itself
guilty of hasty and unsound conclusion, is it likely to find
itself doing more of this sort of thing when it is under the
administrative control of its consumers in plans or opera-
tions? My answer is, yes. I do not see how, in terms of

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human nature, it can be otherwise. I do not see how
intelligence can escape, every once in so often, from swing-
ing into line behind the policy of the employing unit and
prostituting itself in the production of what the Nazis
used to call kdmpfende Wissenschaft . 9 Nor do I see how,
if the unexpected occurred, and intelligence invariably
came up with findings at variance with the policy of the
employing unit, intelligence could expect to draw its pay
over an indefinite period. I cannot escape the belief that
under the circumstances outlined, intelligence will find it-
self right in the middle of policy, and that upon occasions
it will be the unabashed apologist for a given policy rather
than its impartial and objective analyst. As Walter Lipp-
mann sagely remarks, "The only institutional safeguard
[for impartial and objective analysis] is to separate as abso-
lutely as it is possible to do so the staff which executes from
the staff which investigates. The two should be parallel
but quite distinct bodies of men, recruited differently, paid
iE possible from separate funds, responsible to different
heads, intrinsically uninterested in each other’s personal
success." 10

For these reasons, what is unquestionably gained in
guidance may well be lost in the integrity and objectivity
of the operation. The absorption of intelligence producers
by the intelligence consumers may prove to be too heroic
a cure for both disease and patient.

The only way out of the dilemma seems to me to lie in
the very compromise that is usually attempted: guarantee
intelligence its administrative and substantive integrity by
keeping it separate from its consumers; keep trying every

■To be rendered roughly as "knowledge to further aims of state policy”
—the kind of "knowledge” put forth by the party "intellectuals” purport-
ing objectively to prove such phenomena as Aryan Supremacy, German
Destiny, the need for Lebensraum, the Judeo-Capitalistic-Dolshevist En-
circlement, the Stab in the Back, the Versailles Diktat, etc.

“Quoted from Public Opinion (The Macmillan Co., N.Y., 1922) with
the kind permission of the publisher. Chap XXVI § 2.

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known device to make the users familiar with the pro-
ducers’ organization, and the producers with the users'
organization.

The Problem of Intelligence and Policy Formulation

What has just been said of intelligence and policy is not
all that must be said. Certainly intelligence must not be
the apologist for policy, but this does not mean that intel-
ligence has no role in policy formulation. Intelligence’s
role is definite and simple. Its job might be described in
two stages: (1) the exhaustive examination of the situation
for which a policy is required, and (2) the objective and
impartial exploration of all the alternative solutions which
the policy problem offers.

It goes without saying that intelligence can skew its
findings in either stage, especially in the second, so that
one alternative will appear many times more attractive
than the others. It is not heartening to reflect that just this
has been done, though it would be hard to prove that
every such crime was one upon which intelligence em-
barked entirely on its own responsibility. For instance,
during the war some British intelligence organizations
could prove at the drop of a hat that there was such a
thing as a soft underbelly and that compared to it all other
portals to fortress Europa were as granite. Merely because
intelligence is capable of getting off the beam is not suffi-
cient reason to exclude it entirely from policy considera-
tions or to condemn it as unprincipled. As long as its
complement of professional personnel is of high intellec-
tual and moral caliber, the risks which the policy-making
users run in accepting its analysis of alternatives are far less
than those they would run if they excluded intelligence
from their councils.

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The Problem of Intelligence (the Product) and its Ac-
ceptance

As far as an intelligence staff is concerned, what it de-
sires above all else is that its findings prove useful in the
making of decisions. There is, however, no universal law
which obliges policy, plans, and operations to accept and
use these findings. If intelligence is guilty of poor method
or errors in judgment, there is nothing to coerce its puta-
tive consumers into acting upon its advice. This fact has
its benefits and its evils. The benefits are almost too ob-
vious to mention: for example, no one would advocate
taking a course of action which evidence, not considered
by intelligence, indicated to be suicidal. Just because an
intelligence aberration happens to indicate the law of grav-
ity is inoperative in Lent does not constitute sufficient rea-
son to jump off a high roof on Good Friday. But in this
very laudable liberty to discount intelligence lies a source
of danger. Where is one to start discounting and where
stop discounting intelligence?

In one of the books for children written by James Wil-
lard Shultz there is a story of some Indian tribes readying
themselves for the warpath. The combined chiefs met to
discuss the projected operation and instructed the head-
quarters G-2 (a medicine man named White Antelope) to
give them an estimate of enemy capabilities. In a couple
of days’ time White Antelope, having gone through the
necessary professional gyrations, came back to the com-
bined chiefs with his estimate. It seems that the gods had
favored his ceremonial by granting him a vision in which
he saw a lone raven seated on the carcass of a dead deer.
As the raven feasted he did not notice a magpie who
slipped into a tree overhead and took some observations,
nor did he notice that the magpie gave the signal for the
concentration of his deployed force. When the magpies’
build-up in strength was sufficient, they dropped down

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upon the raven and attacked. The raven put up a game
fight, but as things moved from bad to worse decided to
retreat to prepared positions. If White Antelope were an
irresponsible G-2 he might have left it at that, but being
a responsible man and feeling that he should make his
contribution to the common cause, he hazarded an inter-
pretation. To him the raven was the allied force and the
magpies were the enemy— the facts would justify such an
interpretation— and plainly the enemy's capabilities were
more than adequate. The allies were in for a licking. He
said as much. But Bull Head who was supreme com-
mander spoke up and said in effect, “What you tell us is
not much more than that the expeditionary force will be
in danger. This we already know. As to the raven and
the magpies, it is my belief that we are the magpies, and
the enemy, the raven. We start tomorrow.” The G-2's
estimate had not been accepted.

It is important to notice that White Antelope had done
the best he knew how and according to a method which
was standard operating procedure. Bull Head himself
would have admitted as much. Bull Head did not over-
ride his G-2 because of a reasoned distrust of his data or
a rational doubt of his objectivity; he overrode him on the
basis of a hunch and probably a wishful one at that.

Now I do not wish to be the one who rejects all hunches
and intuitions as uniformly perilous, for there are hunches
based upon knowledge and understanding which are the
stuff of highest truth. What I do wish to reject is intuition
based upon nothing and which takes off from the wish.
The intelligence consumer who has been close to the prob-
lem of the producer, who knows it inside out, may have
an insight denied the producer. His near view of the
broad aspects of the problem and his remoteness from the
fogging detail and drudgery of the surveillance or research
may be the very thing which permits him to arrive at a
more accurate synthesis of what the truth is than that

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afforded the producer. But let the consumer, in these cir-
cumstances, beware. If he overrides the conclusions of his
intelligence arm, and makes a correct estimate, let him
deeply ponder why this came about. Let him not get the
notion that he need only consult his stars to outdo his G-2.
If he does get that notion, he will destroy his intelligence
organization— its members will not seek truth so that a
soothsayer may negate their conclusions and embark upon
a perilous course. If there is anything in the rational phi-
losophy of the West— which holds that the mind is the best
long-run solver of unknowns— the consumer who derides
the philosophy runs great risk of making a series of climac-
tic errors. From these there may be no second chance.

Adolf Hitler was such an intelligence consumer. There
is every reason to think that his intelligence at the techni-
cal levels of both surveillance and research was adequate.
In fact there is reason to think it was a good deal better
than that. There is every reason to think that his general
staff was technically competent. There is every reason to
believe that he did not get inaccurate knowledge from his
intelligence or poor advice from the staff which based its
judgments upon this knowledge. Hitler had his hunches
and the first few of them were brilliant. Because of luck,
or because of a profound and perhaps subconscious knowl-
edge of the situations at issue, he called the turn correctly
and in opposition to his more formal sources of advice.
But the trouble was that he apparently did not try to
analyze the why of his successful intuition. He went on
as if his intuition were a natural, personal, and infallible
source of truth. When he began to reap the natural pen-
alties for such errors as overestimating the Luftwaffe’s ca-
pabilities in Britain and underestimating the capabilities
of the Soviet Union, when he ordered a cut-back in Ger-
man war production in the fall of 1941 because he thought
the war was won, he not only took some of the direct and
positive steps to lose the war, but he also took an indirect

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and equally hurtful one in that he damaged severely the
utility of his staff and intelligence services . 11

When intelligence producers realize that there is no
sense in forwarding to a consumer knowledge which does
not correspond to his preconceptions, then intelligence is
through. At this point there is no intelligence and the
consumer is out on his own with no more to guide him
than the indications of the tea leaf and the crystal ball. He
may do well with them, but for the long haul I would

11 The following is illustrative, and I have no doubt that similar inci-
dents occurred outside the Third Reich: Shortly after Mr. Roosevelt's
message to Congress (6 January 1942) in which he put our airplane and
tank production goals at seemingly astronomical figures (we were to
produce 45,000 tanks during the year) Ribbcntrop, who moved in highest
Nazi circles, telephoned the Foreign Office's chief negotiator and advisor
on economic matters— a man named Ritter. The question in Ribbentrop's
mind was, of course, the bluff and propaganda quanta in the President’s
figures. He already had decided (out of intuition, perhaps) that the goals
which Mr. Roosevelt had mentioned were very largely nonsense. What he
asked Ritter was an estimate of American steel capacity.

Ritter replied that the last firm figure available on actual production
was 45,000,000 tons and that the consensus placed capacity at 57,000,000.
He may have talked in the familiar way of the expert, and instead of using
the word "million" merely used the numbers forty-five and fifty-seven. A
few days later— after hearing that some other experts had revised the figure
upwards to 110,000,000 tons Ribbentrop called him again and scolded him
for what he felt to bean over-inflated picture. Ritter, making clear his own
position, asserted that in his judgment the figure 110,000,000 was too high
and that his own estimate was somewhere between 60 and 70 million tons.

In another few days Ribbentrop was back again. This time with a note
of triumph in his voice, he put the question, "Do you think the 45,000
tank figure is possible?" The answer: "Ya I think it is possible." The next
query: "But if you accept the tank figure and each tank contains at least
two tons of steel, already you have accounted for 90,000 tons of steel.
Your estimated overall steel capacity would be completely absorbed in
tanks." The reply: “But Mr. Minister, you are talking in terms of thou-
sands of tons. We speak of steel production in terms of millions." Ribben-
trop hung up abruptly.

It was within Ribbentrop's province to question the estimate of the
experts, and the fact that his technical ignorance was profound seems in
no way to have inhibited him. Indeed, in other circumstances one can
easily imagine a difference between consumer’s hunch and Lhe producer’s
estimate which did not provoke a final and clarifying telephone call. In
these circumstances a course of action might be adopted which was close
to pure folly. (I am indebted to Professor Harold C. Deutsch for this
anecdote.)

205

STRATEGIC INTELLIGENCE

place my money elsewhere. Without discarding intuition
as invariably a false friend, I would urge the consumer
to use it with a full knowledge of its frailties. When the
findings of the intelligence arm are regularly ignored by
the consumer, and this because of consumer intuition, he
should recognize that he is turning his back on the two
instruments by which western man has, since Aristotle,
steadily enlarged his horizon of knowledge— the instru-
ments of reason and scientific method.

206

APPENDIX

APPENDIX

KINDS OF INTELLIGENCE

I ntelligence at the national level in both wartime and
peacetime has a great number of separate and distinct
forms, and is carried out by a wide range of federal de-
partments and agencies . 1 Until the general reader is aware
of the multiplicity of forms, and aware of the rough pat-
tern of their arrangement, his elementary confusion is
easily justified.

In the pages which follow, I have three aims: First and
foremost, to set out in an orderly, if somewhat arbitrary,
form the main kinds of intelligence in which our federal
government engages. This I will do in the charts and
explanatory text. Secondly, I will indicate the particular
kinds of intelligence with which this book has been con-
cerned. And lastly, having given an oversimplified picture,
I will endeavor to reintroduce a corrective element of
murkiness and confusion in so far as this is characteristic
of the federal intelligence pattern.

Explanation of the Terminology of the Charts

1. SECURITY AND POSITIVE INTELLIGENCE
a. Security Intelligence. To put it in its simplest terms,
you should think of security intelligence as basically the
intelligence behind the police function. Its job is to pro-
tect the nation and its members from malefactors who are
working to our national or individual hurt. In one of its
most dramatic forms it is the intelligence which continu-
ously is trying to put the finger on the clandestine agents
sent here by foreign powers. In another, it is the activity
which protects our frontiers against other undesirable gate-
crashers: illegal entrants, smugglers, dope runners, and so

1 See diagram* following p. 210.

209

APPENDIX

on. It identifies our own home-grown traitors and persons
violating the federal law. By and large, security intelli-
gence is the knowledge and the activity which our defen-
sive police forces must have before they take specific action
against the individual ill-wisher or ill-doer.

b. Positive Intelligence . Positive intelligence is harder
to define. If one wished to talk in not-quite-true riddles,
he might say that positive intelligence was what was left
of the entire field after security intelligence had been sub-
tracted. This is a starter, but not too helpful.

To approach it more directly: it is all the things you
should know in advance of initiating a course of action.
Thus, positive military intelligence in anticipation of an
offensive operation furnishes the military commander with
all knowledge possible on the strength and deployment of
the enemy and on the physical attributes of the battlefield
to be. The idea is that the commander should know what
he will be up against before he goes into battle. There
are many other kinds of positive intelligence besides mili-
tary, but all of them have about them the preparatory
characteristic typical of this phase of military intelligence.

If this were the only aspect of positive intelligence, the
defining of it would not be so difficult. But there is an-
other aspect, and one which is closely enough akin to
security intelligence to cause some trouble. Everyone who
knows that there is such a thing as positive military intelli-
gence knows that it does not confine itself to furnishing
strategists, planners, and field commanders with the sort
of knowledge they must have before they take action.
Practically everyone knows that military intelligence must
also try to find out what the enemy’s plans are, so that he
(the enemy) will not be able to take one’s own forces by
surprise. In other words, positive intelligence is not merely
an intelligence for the commander on the offensive (the
man who has taken or plans to take the initiative), it is
also the intelligence which protects this commander against

210

1 l

SECURITY

WHERE:
Against what
targets

WHAT FUNCTION TO BE SERVED

Range of inter-
est to be served

[ The Intelligence of National Security and
Welfare:

LONG

RANGE

Long range investigations o[ such things
/ as:

International communism.
International fascism.

International traffic in narcotics.
International white slavery.

FOREIGN

< MEDIUM
RANGE

{

Intelligence of enemy agents and their
home organizations, foreign malefactors.

{

Intelligence of "Safe-Haven” (identifica-
tion of hidden exterior assets of former
Axis states.

SHORT

RANGE

{

Operational intelligence for carrying out
apprehension of unregistered foreign
agents, illegal entrants, smugglers, etc.

LONG

RANGE

Intelligence of Domestic Danger:

"Un-American” trends, movements, and
organizations —

Causes behind them: U.5. Commu-
nists, SilvershirLs, KKK.

DOMESTIC

MEDIUM

RANGE

J Identification of “disloyal” employees of
I the Federal government.

SHORT

Grange

I Identification of criminal offenders of the
i Federal laws.

TELLIGENCE

EPARTMENTS AND AGENCIES CONCERNED

ic Central Intelligence Agency.

I Hoc. Interdepartmental Intelligence Committees acting *;
ider the Central Intelligence Agency. %

le Joint Intelligence Committee ol the Joint Chiefs of !■

iff. :■

rpartmental Intelligence Organizations. ■;

The office^ of Intelligence Research and Intelligence ;I
Collection and Dissemination in the State Department. >

The Positive intelligence branches in: -I

a. The Division of Intelligence — Army Department.

b. Division of Naval Intelligence — Navy Department. >

c. Division oE Intelligence — Air Force Department. \

‘'Intelligence” branches (not so called) in other depart- :•
ments such as Bureau of Agricultural Economics in
Dept, of Agriculture,, Bureau of Foreign and Domestic <
Commerce in Dept, of Commerce. :j

Departmental field forces— The Attaches Dn foreign
duty. •:

. Foreign missions of the State Department and the
operating officers in the home office.

. Attaches: Military, Naval, Air, Commercial, Labor, Oil,
Cultural, etc., from departments with key or secondary
responsibility in foreign affairs.

. Home operating desks of these departments.

. Military, Naval and/or Air intelligence units of expedi-
tionary or occupying forces.

. Division of Legislative Reference, Library of Congress.

>. Congressional Investigating Committees.

). Committees set up by the President, such as National
Resources Planning Board.

[. Organizations like the Bureau of Labor Statistics, Bu-
reau . . . Domestic Commerce.

MAIN

CATEGORIES
of Subject Matter
(Not all organiza-
tions concern them-
selves with all sub-
jects)

Investigative and research branches in the chief adminis-
trative agencies, such as the Interstate Commerce Commis-
sion, the Federal Trade Commission, Securities and
Exchange Commission, etc.

Weather Bureau, Bureau of Labor Statistics, Bureau of
the Census. Many divisions of Commerce and Agriculture
Departments, etc.

The kinds of intelligence treated in this book are in the area enclosed by doited line.

KINDS OF INTELLIGENCE

the surprise moves of his opponent. In this aspect it has
an important defensive and protective flavor. Is this flavor
distinguishable from what I have given security intelli-
gence? The answer is, yes.

Let me illustrate the distinction. A policeman, alerted
by security intelligence, will protect your house against
burglars, or, if the house is robbed, he will use security
intelligence to catch the burglars. But this policeman will
not warn you when there is to be a boost in the price of
beef, nor will he tell you when your bank is going to fail.
This is not his job. To get this kind of protective knowl-
edge, you will have to patronize some sort of positive intel-
ligence service.

2 . FOREIGN AND DOMESTIC

“Foreign” and “domestic” in the context of intelligence
refer to the targets of intelligence, not to the place where
the intelligence activity takes place. For example, by “se-
curity intelligence— foreign,” I mean the security in-
telligence which applies itself to another country’s spies,
saboteurs, or agents provocateurs ; which identifies foreign
narcotic and smuggling rings. By “positive intelligence-
foreign,” I mean knowledge of other countries and other
people, and, incidentally, what those countries may be
hatching in the way of policy or action against our na-
tional interest.

By “security and positive intelligence— domestic,” I
mean that kind of intelligence which deals exclusively
with people and problems local to the United States, its
territories, and possessions.

3 . LONG-RANGE, MEDIUM-RANGE, SHORT-RANGE

There are many possible levels of intelligence. One
knows, for instance, that there is in all probability an
intelligence project or two designed for members of the
cabinet which has high Soviet policy as a subject; that

211

NTELLIGENCE

DEPARTMENTS AND AGENCIES CONCERNED

The Central Intelligence Agency.

Ad Hoc. Interdepartmental Intelligence Committees acting

under the Central Intelligence Agency.

The Joint Intelligence Committee oF the Joint Chiefs of

Staff.

Departmental Intelligence Organizations.

i. The offices of Intelligence Research and Intelligence
Collection and Dissemination in the State Department.

a. The Positive intelligence branches in:

a. The Division of Intelligence — Army Department.

b. Division of Naval Intelligence — Navy Department.

c. Division of Intelligence — Air Force Department.

g. ‘‘Intelligence” branches (not so called) in cither depart-
ments such as Bureau dF Agricultural Economics in
Dept, of Agriculture., Bureau of Foreign and Domestic
Commerce in Dept, of Commerce.

4. Departmental held forces— The Attach £3 on foreign
duty.

Foreign missions of the State Department and the
operating officers in the home office.

Attaches: Military, Naval, Air, Commercial, Labor, Oil,
Cultural, etc., from departments with key or secondary
responsibility in foreign affairs.

Home operating desks of these departments.

Military, Naval and/or Air intelligence units of expedi-
tionary or occupying forces.

1. Division of Legislative Reference, Library of Congress.

2. Congressional Investigating Committees.

g. Committees set up by the President, such as National
Resources Planning Board.

4. Organizations like the Bureau of Labor Statistics, Bu-
reau . . . Domestic Commerce.

MAIN

CATEGORIES
of Subject Matter
(Not all organiza-
tions concern them-
selves with all sub-
jects)

I Investigative and research branches in the chief adminis-
J trative agencies, such as the Interstate Commerce Commis-
j sion, the Federal Trade Commission, Securities and
I Exchange Commission, etc.

| Weather Bureau, Bureau of Labor Statistics, Bureau of
< the Census. Many divisions of Commerce and Agriculture;

I Departments, etc.

The kinds of intelligence treated in this book are in the area enclosed by dotted line.

KINDS OF INTELLIGENCE

the surprise moves of his opponent. In this aspect it has
an important defensive and protective flavor. Is this flavor
distinguishable from what I have given security intelli-
gence? The answer is, yes.

Let me illustrate the distinction. A policeman, alerted
by security intelligence, will protect your house against
burglars, or, if the house is robbed, he will use security
intelligence to catch the burglars. But this policeman will
not warn you when there is to be a boost in the price of
beef, nor will he tell you when your bank is going to fail.
This is not his job. To get this kind of protective knowl-
edge, you will have to patronize some sort of positive intel-
ligence service.

2 . FOREIGN AND DOMESTIC

"Foreigh” and "domestic” in the context of intelligence
refer to the targets of intelligence, not to the place where
the intelligence activity takes place. For example, by “se-
curity intelligence— foreign,” I mean the security in-
telligence which applies itself to another country’s spies,
saboteurs, or agents provocateurs ; which identifies foreign
narcotic and smuggling rings. By “positive intelligence-
foreign,” I mean knowledge of other countries and other
people, and, incidentally, what those countries may be
hatching in the way of policy or action against our na-
tional interest.

By “security and positive intelligence— domestic,” I
mean that kind of intelligence which deals exclusively
with people and problems local to the United States, its
territories, and possessions.

3 . LONG-RANGE, MEDIUM-RANGE, SHORT-RANGE

There are many possible levels of intelligence. One
knows, for instance, that there is in all probability an
intelligence project or two designed for members of the
cabinet which has high Soviet policy as a subject; that

211

APPENDIX

there is another intelligence which keeps the State Depart-
ment informed about political goings-on in, say, Iran or
Italy; and that there is still another intelligence which
informs an individual officer of the State Department ex-
actly what tone he should strike in a note to, say, the
Danish Ambassador in Washington. One feels instinc-
tively that there are several "intelligences” or several
levels of intelligence, which indeed there are. In military
formations, there is usually an intelligence organization at
each staff or command echelon. When in wartime one
started at the Joint Intelligence Committee at Joint Chiefs
of Staff level and progressed down any of the various serv-
ice ladders to the intelligence section of the smallest
ground, naval, or air unit, one touched perhaps as many
as fifteen levels. As one descended, the intelligence func-
tion became more and more restricted, and more and more
technical. But in a diagram such as I have given, or in a
book such as this, there is no point in too fine a breakdown
in the “function to be served.”

4 . FUNCTION TO BE SERVED

What has already been said in the section on Range may
be extended to explain this column in the charts. The
point is that the federal government has a great many
levels of responsibility and, in general, a level of intelli-
gence to serve each one of them. Its top responsibility is to
the security of the national state against internal and ex-
ternal enemies. This I have called the long-range intelli-
gence of high policy, the national security, the national
welfare, and the grand strategy. This intelligence is the
intelligence of national survival .

Immediately below, I have put the intelligence of de-
partmental policy. By this— and I have called it medium
range— I mean the kind of knowledge (and the activity
which produces it) which is necessary for the State Depart-
ment, the Army Department, the Navy Department, and

212

KINDS OF INTELLIGENCE

the Air Force Department to have in carrying out their
specific functions. Granted that it is difficult, perhaps im-
possible, to identify a departmental problem which has no
supra-departmental significance, at the same time it must
also be granted that there are technical departmental prob-
lems which have far less of this significance than others.

The least function which I have entered on the diagram
is the function of departmental operations . This is, in my
“positive foreign” category, what I have called short range.

Let me illustrate all three levels from a subject of cur-
rent interest: our arming of the Latin American republics.
Intelligence for the basic decision to make standard U.S.
military equipment available to the Good Neighborhood
should be furnished by the highest level. This intelligence
deals with the world situation, the strategic stature of other
countries, and the courses of action open to them. It tries
to estimate how the world situation will be altered by our
decision and whether to our advantage or not.

Suppose, now, that on the basis of top-level intelligence
our high policy people decide that we should work to
standardize military equipment in Latin America. At
once several government departments will have their own
policy problems to straighten out. The State Department
may have been having its troubles with Cuba, or Chile, or
Argentina, and may have been following a policy which is
out of line with the new top-level decision. To get into
line will be something of a task, and the Department's own
intelligence organization may well have an important role.

The lowest level of departmental operations might be
illustrated in, say, the Army Department’s share in the
detailed implementation of the top decision. Before it
sends small-arms ammunition to Brazil to supplement the
local supply it should know, among other things, how large
a ground force the Brazilians plan to maintain. Knowledge
of the Brazilian force in this situation would be what I
have termed the intelligence of departmental operations.

213

APPENDIX

5. DEPARTMENTS AND AGENCIES CONCERNED

In the two top ranges of “positive, foreign" and “secur-
ity, foreign" intelligences, my designation of departments
and agencies concerned is to all intents and purposes com-
plete. In the other ranges of intelligence, which I note on
the diagrams, my designations are intended to be purely
illustrative. I have touched upon the more important or-
ganizations, but anyone familiar with the federal govern-
ment could add many more.

6. MAIN CATEGORIES OF SUBJECT MATTER

These categories, too, are intended to be illustrative
rather than exhaustive. Chapters 2, 3, and 4 treat in detail
the substantive content of the kinds of intelligence which
are the subject of this book.

7. A NOTE ON TECHNIQUES: THE "HOW ACCOMPLISHED”
ELEMENT

All intelligence operations sketched out on the diagrams
tend to develop their own special techniques for the ac-
complishment of their ends. These techniques are numer-
ous and differ widely from each other— as widely, for
example, as fingerprint and ballistics analyses differ from
estimates of coal or wheat production. In a book of this
sort there is no place for even attempting to list the tech-
niques which are not peculiar to the "intelligence" under
review (i.e. foreign positive intelligence). But one point
must be made: Intelligence experts tend to consider the
mass of individual techniques as belonging to one of two
master categories, the overt and the secret or clandestine.

By "overt" I mean the technique of finding things out
by open and above-board methods such as are used in all
kinds of scientific, commercial, and journalistic pursuits.
I mean the kind of technique you might employ if you
wanted to make biscuits for the first time or ascertain the

214

KINDS OF INTELLIGENCE

market price of a railroad stock. In some kinds of intel-
ligence work, especially positive foreign intelligence, you
can learn a great deal by these overt methods. You study
the current published technical literature, or you read the
foreign press, or you listen to the official broadcasts of
foreign radio stations, or you walk down the streets of a
foreign city (with no attempt to conceal your identity) and
observe what is going on. Some intelligence devotees have
said that you can find out by overt means some 90 or more
per cent of what you must know. The remaining percent-
age constitutes the very thing that the other countries re-
gard as secrets of state, and these things cannot be had
without recourse to clandestine operations.

By “clandestine" I mean the technique of finding things
out by various concealed, dissimulative, or surreptitious
activities. I mean the use of such devices as wire-tapping,
the undercover agent, interceptions of the other man’s
mail, and so on. Some branches of intelligence would get
nowhere without using these covert techniques. The best
example is, of course, the intelligence of counter-espio-
nage, where the utter secrecy of the other man’s spying
must be more than matched by the secrecy of your own
counter measures.

Since these two master categories of the techniques of
intelligence may or may not apply to every branch of in-
telligence-depending upon factors of time, degree of
emergency, and the official mandate within which the
branch is permitted to work, I have not indicated a “how
accomplished" element on the diagrams. The reader who
wishes to think up for himself a clearly-defined problem
in intelligence work will be able to make a good guess as
to how much of either technique would be required to
solve it.

215

APPENDIX

The Branches of Intelligence of Particular
Concern to This Study

Of the many kinds of intelligence activity described in
the diagrams, only two are of particular concern to this
study. They are the ones enclosed in dotted line on the
positive intelligence chart, viz., Positive Intelligence,
Foreign, Long and Medium Range (Overt and Clandes-
tine.) This is the intelligence of high policy, national
security, and the grand strategy: the intelligence required
by our top-level foreign policy men in every federal de-
partment.

Is It Realistic to Imply That Each of the
Many Branches of Intelligence Shown on
the Diagrams has Its Own Separate Exist-
ence?

The outline presented above is highly simplified. Cer-
tain qualifications are now needed.

In the first place, it is not always wise to conceive too
high a barrier between security and positive intelligence.
There are phases of the one which are of the greatest im-
portance to the other. Let me give an example. Suppose
some foreign power set up an espionage system in this
country to spy upon us. Pursuit of these spies is the job of
the counterespionage branch of security intelligence and
theoretically of no formal concern to positive intelligence
whatever. To a certain degree this is the case. But there
are byproducts from the counterespionage activity which
are of highest concern to positive intelligence, so high in
fact, that it has often been argued that security and posi-
tive intelligence (especially at the top levels of the foreign
field) should not be separated at all. What are these by-
products?

Suppose that our counterespionage service moves clan-
destinely and penetrates the foreign espionage net. That

216

KINDS OF INTELLIGENCE

is, before it makes the final arrest, it insinuates one of its
own undercover agents into the other man's spy net. Sup-
pose he not only learns the identity of many of the foreign
agents, but also achieves a position where he reads the
communications and directives which the foreign agents
get from their home office. These documents are not
merely descriptive of that country’s espionage activities;
they are also likely to reveal a great deal about its general
activities, policies, and plans. They may contain the very
information which the positive intelligence people have
wanted for a long time and which they could get from no
other source. I should venture that the by-products of
Canadian counterespionage iij its uncovering of the Soviet
espionage net in Canada were every bit as important as the
destruction of the spy net itself. The Canadian positive
intelligence must have learned things about Soviet policy
which it could not have learned except by itself trying
clandestinely to penetrate the Politburo— which task
would have had its difficulties.

The moral of the above is that whereas, beyond all
doubt, there is a kind of intelligence yju can call security
intelligence, and whereas a great many of the activities of
this kind of intelligence are entirely self-contained, there
are other and important aspects of security intelligence
which pass over the artificial barrier I have erected and
mix inextricably with positive intelligence.

So also with the theoretical foreign and domestic intelli-
gence. For example, in the course of its daily business of
recommending, making, and implementing our foreign
policy, the Department of State encounters a large number
of organizations of Americans whose parents came from
foreign countries. Many of these organizations— the Poles
for example— have strong views on what United States
policy should be toward Poland. Now what these foreign
nationalities in the United States think and do about our
foreign policy is likely to be a matter of some importance

217

APPENDIX

to us, and the knowledge of what they think and do can
be a very significant phase of what might be called domes-
tic positive intelligence. But merely because these people
are Americans by birth, and the issues which trouble them
are American issues, there is no reason to think of them
as an exclusively domestic intelligence source. The roots
that they have in the old world, the contacts and commu-
nications they have with it, the old-world visitors they see
and talk to, make them a subtle and sometimes a unique
source of foreign positive intelligence. Here again, the by-
products of a purely domestic intelligence operation may
have a high significance for the foreign branches.

Sometimes domestic intelligence operations unexpect-
edly uncover matters of large concern to foreign intelli-
gence. For example, the Securities and Exchange Com-
mission sent an investigator to the Hawaiian Islands
in 1938 to look into the unregistered sale of some Japanese
government bonds. These bonds were being sold and
bought by Americans of Japanese origin. Enforcement of
a federal statute was at stake as far as domestic intelligence
was concerned, but far more than that for foreign intelli-
gence. For the investigation of the domestic issue revealed
that the Japanese consul had curiosity about many things
not within his legitimate jurisdiction, and had a large un-
official organization of volunteer agents reporting to him.
These facts, and others, were matters for the urgent con-
sideration of the foreign positive intelligence people.

Perhaps more artificial than either of the two preceding
cases of arbitrary separation (the security from the posi-
tive, and the domestic from the foreign) is that of making
too airtight a separation between what I have called the
long-, the medium-, and the short-range intelligence. The
separation is there, but it must not be thought of in abso-
lute terms. For example, a new weapon may have been
secretly developed and a few trial models put into a small
military action. The existence of a few of these weapons

218

RINDS OF INTELLIGENCE

may first come to the attention of the force against which
they are being employed. Say that the weapon is a new
fieldpiece, and the force it is being used against is a bat-
talion of infantry. Intelligence of the weapon is of great
operational importance to the battalion. The battalion
intelligence officer must find out as much about it as pos-
sible so that his force will not be wiped out by it. What
he embarks upon is the shortest of short-range intelligence
activity; it could be properly termed combat intelligence.
Yet what he discovers about the weapon may be of pro-
digious importance. If the weapon is effective, his short-
range intelligence work is of significance not merely to
the medium-, but also the long-range activities. A weapon
like the German triple-purpose 8& mm. rifle, tried out on
a battlefield of the Spanish Revolution, is a case in point.
Knowledge of it was of importance, not merely to the
Republican unit which first encountered it but to the
grand strategists of all the general staffs of all the powers
of the world. So, with the first guided missile, the first 50-
caliber machine gun, the hedgehog, the V-l, and so on.

On the other hand, long- and medium-range intelligence
frequently has its short-range importance. It is almost un-
avoidable that a thorough study of the long-term policy of,
say, the French Communists— a study designed primarily
to assist our top foreign economic policy people and plan-
ners— would not also have some small operational (short-
range) value to one of our representatives in Paris.

Lastly, even overt and clandestine intelligence activities
have a way of mingling with each other so that a hard-and-
sharp line is sometimes difficult to draw. For example,
when an undercover agent learns something through an
activity for which his cover was not necessary— say, he read
it in the paper— and reports it, he could be considered as
engaging in overt intelligence. Or per contra , when an
attach^ with no official funds to spend for the purchase of
confidential information buys a hungry and potential

219

APPENDIX

"source” a series of expensive meals out of his own pocket,
he is pretty close to clandestine intelligence.

More important than this inadvertent merger of func-
tion is the inadvertent merger of what both overt and clan-
destine intelligence produce in the way of substance. An
overt intelligence organization must have the produce of
clandestine intelligence to make its descriptions, reports,
and speculations complete. It cannot hope to acquire all
that it needs through its own open methods; there will
always be the missing pieces which the clandestine people
must produce. But on the other hand, the clandestine peo-
ple will not know what to look for unless they themselves
use a great deal of intelligence which they or some otheT
outfit has acquired overtly. Their identification of a suit-
able target, their hitting of it, their reporting of their hit-
all these activities exist in an atmosphere of free and open
intelligence. A good clandestine intelligence report may
have a heavy ingredient of overt intelligence.

The real picture of the diversity in kinds of intelligence
is the one I have been trying to block out in these last
pages. Its essence lies in this truth: a very great many of
the arbitrarily defined branches of intelligence are inter-
dependent. Each may have its well-defined primary target
which it makes its primary concern, but both the pursuit
of this target and the by-products of pursuing it bring
most of the independent branches into some sort of rela-
tionship with the others. Intelligence as an activity is at its
best when this fact is realized and acted upon in good faith.

220

INDEX

acceptance of intelligence by its
users, 202-206

administrative decentralization in
intelligence organization, 127-
129

administration of intelligence or-
ganizations, key problems,
116-147. See also , Intelligence
organization

Agriculture, Department of, in de-
partmental intelligence, Bl, 91
air bombardment and target analy-
sis, 17-19

air fields, in intelligence, 16; exam-
ple of error in, 17B-179
analogy as a phase of intelligence
research, 46

applicability of intelligence to
problems of policy and strategy,
162 164

"area" programs of univenity
study and intelligence organi-
zation, 121

armed forces, intelligence organiza-
tion of, 104; personnel policies
for intelligence organization of,
111-112

armed forces, lack of a career in
intelligence in, BB, 97, 112;
need for acknowledgment of
a specialization in intelligence,
113; assignment of personnel
to intelligence, 97

"Ask Mr. Foster" intelligence. See
Intelligence, spot

attaches in intelligence work, 46;
desired qualities in, 69; as col-
lectors of information, Bl

basic intelligence, basic-descriptive
intelligence, 7-B, 1 1 -28
biographical intelligence, 32-39;
how should the function be
performed, 140-143
Byrnes, Secretary of State James F.,
and State Department intelli-
gence, 113-114

Canada, Soviet Union’s espionage
activities in, 130-131, 152
capabilities, 61-64; capabilities an-
alysis, 63-64. See also Intelli-
gence, speculative evaluative
element of

cartography in intelligence work,
143-144

central intelligence and its role in
substantive work, 94; as a
"holding company," B0-B1; as
an "operating company," 60;
arguments pro and con the "op-
erating company" idea, B0-B2;
ideal staff, 95-96; ideal opera-
tional functions, 102-103; ideal
coordinative functions and
powers of, 90-94; difficulties of
performing these functions, 94-
100

Central Intelligence Agency and:
inspection of departmental in-
telligence organizations, B5, B6-
B7; the intelligence for national
security. B5-86; its director, B7-
Bfl; security of its personnel,
B9-90; disadvantages of military
control, 96-97; functions of, ac-
cording to the provisions of the
National Security Act of 1947,
83-90; shortcomings of this Act,
101; no police functions, B4
Central Intelligence Group, formed
Jan. 1946, 7B; character of, 7B-
79; superseded by Central In-
telligence Agency, 79
civil service and intelligence per-
sonnel, 105 and n., 145-147
clandestine intelligence, see Intel-
ligence, clandestine
collation, see Intelligence, evalua-
tion of

collection of data, 9, 157; some of
the problems of, 164-168
collection and dissemination, ex-
clusive, as the function of a

221

INDEX

■ingle administrative unit, 137-
140, 165

Commerce, Department of, in de-
partmental intelligence, 98-99
Conan t, Praident Jamei B. of
Harvard and his On Under
standing Science , 156, 157
consumers of intelligence, problems
with producer*, 1 BO -206; intel-
ligence producer* excluded
from knowledge of "own
fores,” 1B6-187; psychological
barrier between- and producer*,
1B9-190; security problems with
producer*, 190-193
consumer* of intelligence, distrust-
ful of producer* as not arrying
operational responsibility, 193-
194

"control” staff in departmental in-
telligence, 107-109, 124-125.

126-130; difficulties with pro-
fessional staff, 126-128; qualities
of ideal control staff member,
129-130

coordination -of departmental intel-
ligence work, 90-94; difficultis
for the Central Intelligence
Agency in, 96-100

coordination of intelligence, see In-
telligence, evaluation of
counterespionage, 3; in security in-
telligence, 209; by-products of,
useful for positive intelligence,
216-217

current intelligence, current-repor-
torial intelligence, 7-8; areas of
knowledge to be covered by,
30-3B

departmental intelligence defined,
104; principal agenda consid-
ered, 104; functions of, 104-105;
personnel in, 105-109; impor-
tance of expert professional
personnel, 109

"development” of a source, 168 and

n.

dimemination, exdusive, as a func-
tion of a collection and dis-
semination unit, 136, 138-140
division of labor in intelligence

worjc, necessary, viii; penal Lia
of carelea, 109-111, 169; and
hypothesis, 174-175

eamomic data necessary for war
potential computations, 48-54
economic intelligence, see Intelli-
gence and economic data
economic warfare, see Intelligence
and economic warfare
espionage, Soviet, in Canada, 130-
131. 152

estimate of the situation, as a for-
mula in military doctrine, 1B5;
briefly defined, 1B6; as a posa-
ble reason for intelligence fail-
ures, 1B6 188

estimates, 58-61; validity of, 60-61
evaluation of data, 169, 170; ques-
tionable elements in evaluation
procedures, 171-174
evaluation of sources of data, 170,
171

evaluators. 168-169, 170-174
expertise, in making evaluations,
64-65

extrapolation as a phase of intelli-
gence research, 46

Federal Bureau of Investigation
and security intelligence, see
Charts in the Appendix; and
the Central Intelligence
Agency, 86-87

field force in intelligence, adminis-
trative problems of, 130-132.
See also Attaches

force-in-being vs. mobilizable force,
43. 46-47

Foreign Broadcast Information
Branch, importance of, 153
foreign policy and intelligence, 4-7,
85-86

Foreign Service and intelligence, 9,
10 and n., 81

functional organization of an intel-
ligence operation, the, dis-
cussed, 116-120; case against,
120-122

geography and geographical data,
see Intelligence and

222

INDEX

geographical load cm, importance
of in war potential computa-
tions, 42 and n.

guidance, of intelligence work, 162-
164, 1B0-1B4

Hitler, Adolf, and the acceptance of
intelligence, 204-205
hypothois in intelligence work,
157-15B, 174-176; gTeat discov-
eries a function of good hy-
potheses, 174; not encouraged
by division of labor in intelli-
gence organizadon, 174-175; the
moment of, 174; requires that
personnel have full knowledge
of the data, 175; and interde-
partmental jealousies, 175-176

INTELLIGENCE

intelligence and acceptance by
users, 202-206
as activity, ix, 151-206
administradon of, see Intelligence
organization

hasic, see Basic intelligence
capabilities, see Capabalities
clandestine, defined, 215; in sur-
veillance work, 152; functions
of, 166; segregation from overt
intelligence operations, 166-
167; dangers of segregadon,
167-168; and security, 168
dandesdne, and development of
secret techniques, 168
central, see Central intelligence
collection, see Collccdon
consumers, see Consumers of in-
telligence

current, current reportorial ele-
ment of, 7-8; areas of knowl-
edge to be covered by, 30-58
demoralizadon of, 176-177; 204
departmental, see Departmental
intelligence

descriptive element of, 5, 6, 7, 11-
29

disemination of, 156, 13B-140; by
evaluatoTs, 169-170
domesdc, defined, 211; area of
overlap with foreign, 217-21 B
and economic data, 54-55; in

war pot oi rial computations, 48-
54

and economic warfare, 21-22
encyclopedias, 11-25; contents of
typical, 12-13, 22-23, 24-25
estimates, see Estimate
evaluation of, 157; problems in,
168-174

failures of, 15; atributable or not
to the estimate of the situation
formula, 1B6-1B8; attributable
or not to psychological factors,
1B9-190; attributable or not to
security considerations, 190-195
bilures of, attributable to non-
confidence of users, 195-194; at-
tributable to producer’s being
too close to users, 195-201
foreign, 3; defined, 211; area of
overlap with domesdc, 217-21 B
functions of strategic, vii. 3, 9
in general defined, vii
and geographic phenomena, 53,
49

guidance of, see Guidance
high foreign positive defined, 3-4;
criteria of definition, 4-5. See
also Intelligence, long range
and intentions of other countrio,
see Intentions
importance of, ix
as knowledge, vii, ix; as dscrip-
tive knowledge of relatively
changeless phenomena, 11-29;
as reportorial knowledge on
changing phenomena, 30-3 B; as
speculative knowledge on mat-
ters of future occurrence, 59415
kinds of, 209-220

long range, defined, 211, 213; area
of overlap with short and me-
dium range, 21B-219
medium range, defined, 211, 212;
area of overlap with short and
long range, 21B-219
special methodological problems
of. 159-179

military, 12, 15-17. 33-54
for military government, 22-24
and moral data, 56-37, 49
and the “narrow-deep'’ study, 26-
28

223

INDEX

of national security defined, B5-
B6

objectivity of, jeopardized by be-
ing too dose to consumers, 195-
201

organization, staff, 69-72
organization as a university fac-
ulty, 74-75; as a newspaper, 75;
as a businee, 75-76
as organization, general remarks,
ix. 69-77

organization and the role of the
"control" staff, 124-125, 126-150
organization and the handling of
non-regional subject matter,
122-125

organization, the case for regional
organization, 119-121
organization, functional or re-
gional, 116-121

organization, key problems of,
116-147

organization and difficulties with
civil service, 145-147
overt, surveillance force, 69;
characteristics of the overt ob-
server, 70; defined. 214-215;
area of overlap with dando-
tine, 219-220

overt, attaches et al., as collectors
of, 46, B0-B1; defined, 214-215;
area of overlap with clandes-
tine, 219-220

of personalities, see Biographical
intelligence

personnel, qualities of, 69-74; in
departmental intelligence, 1 OS-
109; in central intelligence, 95-
96

and policy, and the clement of
guidance to intelligence work,
162-164; danger of too dose
relationship between, 195-201;
correct relationship, 201
and political data, 55, 49
and political warfare, 19-21
and population data, 49
and port data, 14-15
positive, 5; defined, 209-211, areas
of overlap with security intel-
ligence, 216-217
and power data, 49

as an element of preparation in
foreign policy or strategy, 5-6
proentation, problems of meth-
od in, 176-179; brevity, 176;
footnoting, 177-17B; examples
of results of omitting footnotes,
178-179. See also Method of in-
telligence
as protection, 5, 6
problems (substantive), emerg-
ence of, 159-161; analysis of, 162-
164; collection of data for the
development of, 164-16B; evalu-
ation of data, 168-174; moment
of hypothais in, 174-176; pres-
entation, 176-179
producers, and consumers, see
Consumers of intelligence
and railroad data, 14
‘raw." 15B-159
and raw materials data, 49
and relation with plans and oper-
ations staffs, 9, 1B5-1B6, 1B7
requisitions; see Requisitions
reporting, see Reporting
research, see Research
and roads data, 12, 15-14
role of, in the estimate of the
situation, see Estimate of the
situation

and scientific- technological data,
57, 49

security intelligence, defined, 209-
210; areas of overlap with posi-
tive intelligence, 216-217
shortcomings of, see Intelligence
failures

and social data, 55-56, 49
and the social sciences, 50 ff, 59-
60, 156 and n., 157
short range, defined, 211, 215;
area of overlap with medium
and long range, 21B-219
speculative evaluative clement of,
59 ff

spot, 2B-29

stages in research methods of,
157-15B

"strategic" defined, 5-4
for strategic bombardment, 17-19
and strategic stature, see Strategic
stature

224

INDEX

subsLantivc content of, 4-7. 3-65
surveillance, see Surveillance
and translation service as an ex-
ample of division of labor,
109-110

and transportation data, 49
users; see Consumers of intelli-
gence

probable, of other countries and
the intelligence mission, 7, 58-
60

Interior, Department of. Bureau of
Mines as an intelligence or-
ganization, 91

interpolation as a phase of intelli-
gence research, 46

Joint Intelligence Committee, 73n.
Justice, Department of, in depart-
mental intelligence, Bl, 91

library, in intelligence organization,
defined, 133-134; functions of,
134-136; centralized and essen-
tial to intelligence organiza-
tion, 133, 136; and collection
of materials, 134-135; registra-
tion of materials, 135; indexing
of materials, 135; curatorship
of materials, 135

map intelligence, administrative
problems of, 143-145
maps, collection of, 143, 144
method, special problems of, in in-
telligence work, 159-179; the
collection of data, 164-16B; the
evaluation of data, 16B-174; the
moment of hypothesis, 174-176;
presentation, 176-179
method, special problems of, in in-
telligence work, the emergence
of the substantive problem,
159-162; the analysis of the sub-
stantive problem, 162-164
method, stages in, in intelligence
work, 157-15B
middlemen, see Evaluators
mobilization, factors in, 49-50, 52-56
monitoring of radio programs, im-
portance of an intelligence, 153
monographs, 11-13

moral factors in war potential, 54-
55

moral intelligence; see Intelligence
and moral data

National Security Act of 1947, and
the Central Intelligence Agency,
B3 If

National Intelligence Authority,
membership, 78; and Lhe Cen-
tral Intelligence Group, 7B-79
National Security Council, 83 and n.

objectivity of intelligence, see In-
telligence, objectivity
observation, see Surveillance
official secrets act, an, and effects
upon security, 193 and n.
overt intelligence, defined, 214-215.
See also Intelligence, overt

peace handbooks, 24-25
peoples, in intelligence, 13, 49
personalities in intelligence investi-
gations, see Biographical intel-
ligence

personalities unit in intelligence or-
ganization, ideal functioning of,
142

personnel in intelligence organiza-
tions: administrative group,

105; clerical group, 106; library
group, 106-107; professional
group, 107; control group, 1 07-
109

policy making, role of intelligence
in, 201

political intelligence, see Intelli-
gence and political data, n.
political factors in war potential, 50
political warfare, see Intelligence
and political warfare
population, see Intelligence and
population

ports, in intelligence, see Intelli-
gence and Port data
positive intelligence, see Intelli-
gence, positive

power, see Intelligence and power
priorities in intelligence work, 9,
126

225

INDEX

problems, substantive, appearance
of in intelligence work, 159-162
producers of intelligence, problems
with consumers; see Consumers
of intelligence

railroads, in intelligence, see Intel-
ligence and Railroads
raw intelligence, see Intelligence,
raw

raw materials, see Intelligence and
raw materials

reduction-in-force procedures and
intelligence organizations, 145
reporting, 170; see also currcnt-re-
portorial intelligence
requisitions for data, difficulties in
issuing, 165-166

research in intelligence work, 4, 46,
71-74; initiation of, 151-152
research and surveillance insepara-
ble. 152

roads, see Intelligence and roads
Ribbcntrop, Joachim von, as an in-
telligence consumer, 205

scientific and technological intelli-
gence, see Intelligence, scien-
tific and technologiral data
secret intelligence, see Intelligence,
clandestine

security (i.e., the safeguarding of se-
crets), importance of, 190; diffi-
culties to intelligence occasioned
by, 175, 190-195; and the Na-
tional Security Act, B9 and n.,
90

security intelligence, see Intelli-
gence, security intelligence
security in the military establish-
ments vs. civilian departments,
192n.

"situation,*’ the, knowledge of es-
sential as a precondition to war
potential computations, 41-42
and n., 44-45

social factors in war potential, 54
Soviet Union, apionage operation
in Canada, 130-131. 152
specific vulnerability defined, 56-57;

method of estimating, 57-5B;
identification of, 5B
staff structure, rigid, as a cause for
improper guidance of intelli-
gence work, 1B4-1B5
speculative-evaluative intelligence,
7-B; 59-65

State Department and intelligence,
113-114

strategic stature defined, 40-41;
knowledge necessary for esti-
mates of, 41 ff

strategic survey, contents of a typi-
cal, 12 17

strategy, implements of, 39, 42-44
strategy and intelligence, 39, 40 ff
surveillance, defined, 4, 152; field
force, 69-71; 130-132, 152; home
force. 71-74, 152-154; clandes-
tine, 152; overt, 152; and radio
monitoring, 153; and press cor-
respondents. 153 n.

Tariff Commission in departmental
intelligence, 91

technological intelligence, see Intel-
ligence, scientific and techno-
logical data

translation service as an example
of division of labor in intelli-
gence organization, 109-110
transportation, see Intelligence and
railroads, roads, airfields, ports
Treasury, Department of, in depart-
mental intelligence, Bl, 91

users of intelligence, see Consumers
of intelligence

Van den berg. General Hoyt S.,
U5AF, and Central Intelligence,
79-B0

visual presenters as intelligence
personnel, 106 and n.
vocabulary of intelligence, ix., B, n.

war potential, defined, 43; elements
of, 4B ff; methods of evaluating,
46-4 B

withholding of information, B2,
B6-87

226

I 81+50